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LEAGUE OF NATIONS

TRAFFIC IN WOMEN AND CHILDREN

CONFERENCE OF CENTRAL AUTHORITIES IN EASTERN COUNTRIES

Bandoeng (Java), February 2nd to 13th, 1937

MINUTES OF MEETINGS

GENEVA, 1937. I Published previously :

LICENSED HOUSES. Abstract of the Reports from Governments on the System of Licensed Houses as related to Traffic in Women and Children. (Ser. L.o.N. P. 1 9 2 7 .IV .1 4 )...... Out of print Licensed Houses. — Abstract of the Reports from Governments on the System of Licensed Houses as related to Traffic in Women and Children. Additional Information received from Governments of Countries where the System of Licensed Houses has been abolished. (Ser. L.o.N. P. 1929.IV.2)...... Out of print1 Study of Laws and Regulations with a View to protecting Public Order and Health in Countries where the System of Licensed Houses has been abolished. (Ser. L.o.N. P. 1930.IV .5 ) ...... 3/3 80.80 Abolition of Licensed Houses. (Ser. L.o.N. P. 1934.IV.7 ) ...... 3 /- t o .75

LAWS AND PENALTIES RELATING TO “ SOUTENEURS Concise Study of the Laws and Penalties relating to " Souteneurs ” . (Ser. L.o.N. P. 1931.IV .10)...... 1/3 $0.30

REPORT OF THE SPECIAL BODY OF EXPERTS. Reports (in two parts) of the Special Body of Experts on Traffic in Women and Children. Enquiry into the international organisation of, and certain routes followed by, the traffic between various countries of Europe, North Africa, North America, South America and Central America. Part I (Ser. L.o.N. P. 1927.IV .2/I)...... 2 /- $0.50 Part II (Ser. L.o.N. P. 1927.IV .2/II)...... 7/6 $2.00

COMMISSION OF ENQUIRY INTO TRAFFIC IN WOMEN AND CHILDREN IN THE EAST. Report to the Council. (Ser. L.o.N. P. 1932.IV .8 )...... 16/- $4.00 This report contains a general section in which the results of the enquiry are set forth according to the various racial groups of the victims of the traffic. Western women and Russian women are first studied ; then come the monographs relating to Chinese, Japanese, Philippine, Annamite, Siamese, Malayan, Indian, Persian, Arab and African women. The second part of the report describes the situation in regard to the international traffic, country by country. These studies relate to the following territories : Far East : Japan, China, Hong-Kong, Macao, Philippine Islands, Indo-China, Netherlands East Indies, Straits Settlements, Federated and Unfederated Malay States, Siam. Middle East : India, Ceylon, Persia. Near East : Iraq, Levant Territories under French Mandate, Palestine. Summary of the Report to the Council. (Ser. L.o.N. P. 1934.IV.3) . . . 1 /- $0.25 Digest of the Comments by Private Organisations on the Report of the League of Nations Commission of Enquiry into Traffic in W omen and Children in the East. (Ser. L.o.N. P. 1934.IV.4)...... gd. $0.20 Position of Women of Russian Origin in the Far East. (Ser. L.o.N. P. I 935.IV.3) ...... gd. $0.20

1 Some copies of the French edition are still available. [Communicated to the Council and the Members of the League.] Official No. : C. 476. M. 318. 1937- IV.

Geneva, December 1937.

LEAGUE OF NATIONS

TRAFFIC IN WOMEN AND CHILDREN

CONFERENCE OF CENTRAL AUTHORITIES IN EASTERN COUNTRIES

Bandoeng (Java), February 2nd to 13th, 1937

MINUTES OF MEETINGS

Series of League_____ of Nations Publications

1937. IV. 10. CONTENTS.1

First Meeting, February 2nd, 1937, at 10 a.m. : 1. Opening of the Conference : Speech by M. Enthoven, Director of the Department of J u s t ic e ...... 5 2. Message to the Conference from M. Avenol, Secretary-General of the League of Nations . 8 3. Election of the P r e s id e n t...... 8 4. Speech b y the President...... 8 5. Adoption of the A gen d a...... 9 6. Appointment of the Credentials C o m m ittee...... 9 7. Election of the Vice-President and of the Bureau of the Conference...... 9 8. Adoption of the Rules of P roced u re...... 10 9. Credentials of the Delegates : Report of the Credentials C o m m ittee...... 10

Second Meeting, February 3rd, 1937, at 9.30 a.m. : 10. Closer Collaboration and Wider Exchange of Information between the Police and Other Authorities in the Different Countries who are responsible for Measures concerning the Prevention of Traffic in Women and Children in the East (Item I of the Agenda) : General D iscu ssion ...... 10 11. Appointment of a Sub-Committee to examine the Suggestions made by the Delegates of Siam and of the Straits Settlements regarding Item I of the A g en d a ...... 17

Third Meeting, February 4th, 1937, at 9 a.m. : 12. Telegram from M. von Schmieden, Secretary of the Commission of Enquiry in the Far East 18 13. Credentials of the Delegates : Second Report of the Credentials Committee...... 18 14. Closer Collaboration and Wider Exchange of Information between the Police and Other Authorities in the Different Countries who are responsible for Measures concerning the Prevention of Traffic in Women and Children in the East (Item I of the Agenda) : General Discussion (continuation) : Report of the Sub-Committee concerning the Creation of an Information Bureau in the E ast...... 18

15- Migration, in so far as this Question affects the Protection of Migrants against Traffic in Women and Children (Item II of the Agenda) : General D iscu ssio n ...... 21

Fourth Meeting, February 5th, 1937, at 9 a.m. : 16. Migration, in so far as this Question affects the Protection of Migrants against Traffic in Women and Children (Item II of the Agenda) : General Discussion (continuation) . 25

Fifth Meeting, February 8th, 1937, at 9 a.m. : I7- Possibility of abolishing Licensed or Tolerated Brothels in the East (Item III of the Agenda) : General D iscu ssio n ...... 35

Sixth Meeting, February 9th, 1937, at 5 p.m. : *8. Possibility of abolishing Licensed or Tolerated Brothels in the East (Item III of the Agenda) : General Discussion (continuation)...... 42

Seventh Meeting, February 10th, 1937, at 9 a.m. : I9- Possibility of abolishing Licensed or Tolerated Brothels in the East (Item III of the Agenda) : General Discussion (continuation)...... 48

list of the members of the delegations will be found in Annex 5, page 101 (Report of the Conference entrai Authorities in Eastern Countries).

3 3n S.d.N. 1.115 (F.) 1.n o (A.) 11/37 Imp. Vit te, Lyon. — 4 — E ighth Meeting , February ioth, 1937, at 5.30 p.m. : 20. Closer Collaboration between Police and Other Authorities and Private Organisations in the East (Item IV of the Agenda) : General Discussion ...... 55

N inth Meeting, February nth, 1937, at 9 a.m. : 21. Closer Collaboration between Police and Other Authorities and Private Organisations in the East (Item IV of the Agenda) : General Discussion (continuation)...... 60 22. Possibility of employing a Larger Number of Women Officials by the Authorities responsible for the Welfare of Women and Children (Item V of the Agenda) : General Discussion . 65

T enth Meeting , February 12th, 1937, at 9 a.m. : 23. Problem of Women Refugees of Russian Origin in the Far East who have been or are in Danger of becoming Victims of the Traffic (Item VI of the Agenda) : General Discussion 68 24. Adoption of the Draft Resolutions submitted by the Bureau of the Conference...... 72

E leventh Meeting , February 13th, 1937, at 11 a.m. : 25. Adoption of the Report of the C on feren ce...... 72

T welfth Meeting, February 13th, 1937, at 5.30 p.m. : 26. Close of the C onference...... 73

ANNEXES.

1. Rules of Procedure of the Conference...... 77 2. Creation of an Information Bureau in the East : Report of the Sub-Committee...... 78 3. Selected Statistics of Venereal Diseases and their Treatment : A. British M alaya...... 79 B. Incidence of Venereal Diseases in the Netherlands Indies Army...... 80 4. Replies of Governments to the Questionnaire (Document Conf. /C.T.F.E. /Orient 1) regarding Recent Developments in Eastern Countries ...... 81 5. Report of the Conference of Central Authorities in Eastern Countries...... 101 In d e x ...... 109 FIRST MEETING.

Held on Tuesday, February 2nd, 1937, at 10 a.m.

i. Opening 0! the Conference : Speech by M. Enthoven, Director of the Department of Justice.

M. E n t h o v e n , Director of the Department of Justice, spoke as follows. On the occasion of this, the first Conference to meet in the East to study and organise the campaign against the traffic in women and children, the Governor-General, who has to his regret been prevented from taking part in to-day’s ceremony, has instructed me to convey to you his very cordial welcome. His Excellency is particularly glad to see assembled here for a highly humanitarian purpose the representatives of most of the Governments of this part of the world, of missions and of powerful voluntary organisations. He has no doubt that your lofty motives and your wide experience will ensure a result worthy of your efforts and he has requested me to convey to you his sincerest wishes for the success of your work. To this message of the Governor-General I venture to add, on behalf of the Government of the Netherlands Indies, a word of hearty welcome to all assembled here. In the first place to you, M. Ekstrand, Director of the Social Questions Section, and to your collaborators of the Secretariat of the League of Nations ; and also to you, ladies and gentlemen, delegates of various Eastern countries, and to you, ladies and gentlemen, representatives of private organisations, who have kindly agreed to take part in this Conference ; and in conclusion, to you, our distinguished guests, and to all those whose presence here gives proof of their interest in this work. The Government of the Netherlands Indies is glad to be able to offer hospitality to this Conference in its territory. This Conference — the first on traffic in women and children to be held in the Far East — constitutes a stage on the road hitherto covered in the campaign against this world-wide evil. May I be allowed to request your attention for a short retrospect of some of the outstanding facts which prove the important results which may arise from this Conference. It was in July 1921 — that is to say, more than fifteen years ago — that a Conference was held for the first time in Europe — at Geneva — on the initiative of the League of Nations, with the object of combating the traffic in women and children. At present, an appeal has been made to the countries of the Far East to hold a conference on the same subject. But what a difference there is between the circumstances which led up to these two Conferences ! This difference is particularly calculated to bring out the special character of the present Conference and the possibilities which it has to offer.

* * *

I. The action begun in 1921 was fundamentally due to private initiative, which had already shown such vigour in Europe that the Governments were obliged to place the campaign against traffic in women and children on the programme of the League of Nations. About the year 1869, Josephine Butler had begun the struggle against the institution of licensed houses — in other words, of brothels — and against all the ideas which they implied. Public opinion at that time was convinced that prostitution would be an ineradicable evil on account of the incorrigible sexual need of the male. It was accordingly thought necessary for the sake of good order and public health (the campaign against venereal disease) that the authorities should take measures by which prostitution should be concentrated in certain officially supervised brothels and should be prohibited everywhere else. Provided the authorities did everything possible in these institutions, known as “ licensed houses ”, to combat and attenuate all the evil consequences of immorality, society would be, in general, protected and served in the best possible manner. Josephine Butler was immediately opposed to this theory, which was based on a double morality, and to the subjection of prostitutes to a system of slavery and deprivation of rights, she began the struggle first in England and subsequently transferred it to the continent of Europe. In 1877, the first great congress of the “ International Abolitionist Federation ” took place at Geneva and, as a result, interest was roused in this question in all European countries. Then a man of great ability, Alexander Coote, undertook the leadership of this movement an^> together with Senator Bérenger, made it a matter for Government action. Thanks to this initiative, national committees were formed in the various countries with the object of combating he traffic in women and children. In 1899, the first international congress was held in London, p which eight European countries were represented. In 1902, a second conference was held in ans, which resulted, in 1904, in the Paris Agreement. There was a further Conference of ov®rnnients in 1910 and then came the great war, which put an end to all further efforts. d o ' t t ? war> *he principle of regulation had again been condemned, from a purely medical P tot of view, at a great medical congress held in London in 1913. — 6 — Lastly, it was due to private initiative, and largely to the efforts of Alexander Coote, that after the war, the question of traffic in women and children was included in the programme of thé League of Nations. The above remarks will suffice to show that, in Europe, public opinion was well prepared for the work undertaken by the Conference of the League of Nations in 1921 and that the importance of the questions to be dealt with was fully realised. How different is the aspect under which the present Conference is held in the Far East ! The initiative for convening it did not arise in the Far East. This event comes rather as a surprise to the East. A great proportion of public opinion in the Far East is still very little acquainted with the problems to be dealt with. These questions, and the importance attaching to them, are only just beginning to be realised. This is the case in the Netherlands Indies. In this country, the campaign against traffic in women and children and against prostitution is based almost entirely on the work of the Government. As a result of the Paris Agreement of 1904, the Officer of Justice was appointed, in 1907, at the Batavia Court of Justice in order to combat immorality abroad, and was instructed to collect all information regarding the procuring of women and children ; the agreement in question relates primarily to administrative and police measures, especially measures required for the prevention and prosecution of the offences in question, together with the protection and, if necessary, the repatriation of women and children. This action very soon proved insufficient. It appeared to be preferable to constitute a Government Bureau specially directed against this evil. This plan was realised in 1915. Since that time, the centre of the campaign against the traffic in women and children has been and still remains the Government Bureau. As Director of the Department of Justice, I represent this Bureau in its relations with the Government and with foreign countries, while current matters are dealt with by an inspector. The business of the Bureau is not confined to the international duties which arise directly out of the Agreement, but relates to the immoral exploitation of women and children in general, even outside the sphere of traffic properly so called. The Bureau is thus intended to be the centre of all Government action in the campaign against immorality, and to facilitate the co-operation between justice and the police, on the one hand, and voluntary societies dealing with the protection of women and children, on the other hand. The Bureau maintains close co-operation with the immigration service, the section of Asiatic affairs, the police, etc. May I be permitted to express my satisfaction that the campaign against the traffic in women and children which is concentrated in this Government Bureau earned the appreciation of the Commission of Enquiry of the League of Nations which, in 1931, investigated the facts relating to the traffic in women and children in Eastern countries. In addition to this Government Bureau, private organisations have recently come into existence and consider all these questions with full knowledge of the facts ; their activity is, however, still somewhat isolated and, as far as the Netherlands Indies are concerned, in the initial stage. Their sphere of activity is still very restricted in the large territory which has to be covered ; they have to contend with a diversity of problems for which no solution can be found immediately. It is for this reason that our Conference will be of considerable value, in the first place, from the point of view of propaganda. It will be able to arouse growing interest in all the questions with which it deals. It will be able to make people reflect on many questions ; it will be able, in particular, to open people’s eyes, as has been done in Europe, to the new principles which society needs in order to live a healthy life.

* * *

II. A further comparison may be made between the 1921 Conference and that of 1937 — a comparison which is greatly to the advantage of the present Conference. W hen, in 1921, the representatives of the Governments met at Geneva, the Netherlands delegation proposed an investigation into the relationship between the traffic in women and children and the system of regulation. This proposal was rejected by the majority, because it was desired not to give offence to the Governments of countries in which this principle was still in force. Although this question was placed in 1922 on the programme of the Advisory Committee, great efforts had to be made in order to bring about a frank discussion. In 1925, the League o f Nations decided to m ak e a wide investigation in Europe, America and Africa, with the assistance of a co m m ittee of experts, into the facts and causes of the traffic in women and children. This enquiry extended to twenty-eight countries and was carried out in the m o st expert and thorough manner. The voluminous report1 which appeared in 1927 reached the conclusion that the principal cause of international traffic in women and children lay in the sy stem of regulation of prostitution and licensed houses. I n I 933. the investigations were supplemented by an enquiry carried out in various European towns (capitals, garrisons, ports and international centres) which had abolished or which had never adopted the principle o f regulation. This enquiry also aimed at considering a further aspect of the problem — namely, whether the abolition of this system had no ill effects on health or on public order. The general conclusion at that time was that the dangers of traffic in women and children and the exploitation of women by souteneurs had decreased after the abolition of the system in question, that the closing o f the brothels had had no harmful effect on health (had not increased

1 Documents C.52.M.52.1927.IV (Part I) ; C.52(2).M.52(i ).i 927.IV (Part II). — 7 — venereal disease), that public order and safety had not suffered as a result of this abolition and that, consequently, the question of the traffic could be dealt with in a much more intensive manner, since the brothels were already closed. This is the great difference between the 1921 Conference and that of the present year. The 1921 Conference had not at its disposal far-reaching investigations relating to the problem which forms the core of an entire series of questions closely connected with the campaign against the traffic in women and children. Consequently, it was still possible at that time to eliminate this central principle from the programme. At present, the situation has entirely changed, and that has become impossible. It was in 1934 — the year in which the preparations for the present Conference were begun — that this subject could be frankly placed on the programme of the Conference in the Far East, for the reason that the enquiry conducted in Europe enabled us entirely to clear up this problem. This was possible for the following reasons. The enquiry carried out in the northern hemisphere threw full light on the problem and, furthermore, the League of Nations conducted the same enquiry throughout the whole of Asia and published the results in an important and voluminous report,1 which contained the same conclusions as those to be found in the 1927 report — in particular, that the brothels in Asia constitute the strongest bulwark against the efforts to protect the victims of the traffic in women and children. It will therefore be seen that opinions on this cardinal point have completely changed in the last fifteen years. Considerable work has been accomplished. In this respect, the Far-Eastern countries may obtain great advantage from the pioneer work carried out in Europe, and, in many cases, they will no longer need to look for the solution of various questions, since the solution has been already found.

* * *

III. There is a further aspect of the question which we must consider in order to determine the character of the present Conference within the development which has already taken place in the campaign against the traffic in women and children. In 1921, when the League of Nations took up the subject with which we are dealing, it was a question of “ systems ” and “ rights ”, but, as the efforts in this sphere became more and more successful, further questions arose. This was due to the fact that the investigations into the causes of prostitution covered a wider and more definite field and the horizon in this respect was constantly being extended. Thus, the campaign against prostitution was transferred more and more to the social field and its character constantly became more varied and more specialised. This was shown, inter alia, by the constantly increasing co-operation and consultation within the League of Nations between the Traffic in Women and Children Committee and the Advisory Committee for the Protection and Welfare of Children and Young People. This became very clear when the Inter­ national Abolitionist Federation, the most powerful private organisation and the great pacemaker in the campaign against prostitution, considered, in 1934, that the moment was favourable for taking the initiative of the first International Congress of Social Morals at Budapest. Fourteen international associations representing seventeen different countries met, in the first place, in order to form an opinion as to the causes of prostitution, in the second place, to find means of taking preventive action and, lastly, to study in what manner the victims can be rehabilitated. A list of the subjects discussed at that Conference shows how the problem has been extended by being considered from the social point of view. Here are some of the subjects : The sexual education of youth, private protection institutions (employment agencies, railway and port associations, homes and clubs), special jurisdiction for minors, the problem of juvenile courts, supervision of minors, women police, the campaign against public immorality. It will therefore be seen that, in Europe, the campaign against prostitution is consciously presented under a much wider social aspect and that there is a tendency to link up with a number of institutions which do not form part of the actual mechanism for carrying on the campaign. In the Far East, the same development may be expected, and the initial stage is already discernible. There is reason for gratification that the efforts of the Eastern countries will be united with those of the European countries within the framework of the League of Nations. The documents of the whole world,, collected by the Secretariat of the League of Nations, the discussions to which these documents have given rise, and the correspondence which followed are all of enormous value for any country which wishes to prepare for this task. It must, however, not be forgotten that there are profound differences between the East and the West, whether these countries are considered from the ethnological, sociological or cultural point of view. In the social sphere, there are problems — and often primary problems — which no longer present any difficulties in the West but which are still awaiting solution in the East. In the East, the evolution of the problem which I have described cannot but be a distant objective. Great preparatory and painstaking work must be carried out, in order to prepare the ground for the ultimate harvest. By trying to advance too quickly at the outset, there is a danger of injuring and greatly retarding the entire evolution. The League of Nations, in establishing its programme for the present Conference, has therefore acted wisely in limiting the choice of subjects to primary questions directly connected with the campaign against the traffic in women and children. The only subject which goes much further 18 P°mt IV on the agenda : “ Possibility of employing a larger number of women officials by the authorities responsible for the welfare of women and children”. It is therefore this point which

1 Document C.849.M.393.1932.IV. will constitute a first step on the road leading to the extension of the campaign against prostitutioa to the entire social sphere ; our problem mil thus be already extended. This question raises n number of other questions which might easily lead us beyond the field of prostitution and the traffic in women and children properly so called. The task which this Conference has set itself cannot be called an easy one ; nothing can be predicted as to its results. The Conference is, however, rich in possibilities. Although the result depends on numerous very divergent factors, there can be nothing but praise for the initiative which will lead our steps towards the realisation of all these possibilities. Honour is due to the League of Nations for this. Ladies and gentlemen, you have come long distances in the hope of attaining a noble aim by co-operation and by the firm desire to overcome all difficulties. I hope that your efforts will bear much fruit. Ladies and gentlemen, the Conference is open.

2. Message to the Conference from M. Avenol, Secretary-General oî the League ol Nations.

M. E k s t r a n d , Director of the Opium Traffic and Social Questions Sections of the League of Nations, Secretary-General of the Conference, read the following message from M. Avenol, Secretary-General of the League of Nations : The Conference of Central Authorities in Eastern Countries at Bandoeng has been called in order to give effect to the suggestions and recommendations made by the Commission of Enquiry into Traffic in Women and Children in the East in 1932. Its convocation has been greatly facilitated by the invitation which the Netherlands Government very generously tendered to the League of Nations, and I should like to preface my message by an expression of sincere thanks, on behalf of the League, for this new proof of the sympathetic interest which the Netherlands Government takes in the work of the League. The subjects with which this Conference is called upon to deal, the part of the world with which it is concerned, and the place in which it is being held should confound all those who have alleged that the League of Nations is chiefly a European organisation, and that it is almost exclusively interested in political questions. The fact that the League headquarters are situated in the centre of Europe has never prevented it from taking the greatest possible interest in non- European affairs, from sending out of Europe its experts and officials, or from holding conferences in other parts of the world. I would recall in this connection that for many years the League has maintained the Eastern Bureau of its Health Organisation at Singapore, the value of whose work is universally recognised, that a conference for the suppression of opium-smoking was held in Bangkok in 1931, and that a conference on rural hygiene in the Far East is to take place in Bandoeng in August 1937, to mention only three examples of the League’s work in the part of the world in which this Conference is being held. Moreover, the subjects to be discussed at this Conference bear witness to the very many non-political interests of the League of Nations, which also include such matters as economic questions, financial questions, the fight against the traffic in dangerous drugs, health problems, questions of transit, etc. In the words which the United Kingdom representative pronounced at the meeting of the Council of the League of Nations on October 10th, 1936,1 the present Conference constitutes " the first effort on the part of the League of Nations to tackle the traffic in women in the East, after some sixteen years of fighting the same evil in Europe and America ”. If the social scourge has become less serious in the two continents mentioned by the United Kingdom representative, it is due not least to the League’s unceasing efforts in this field, which, by leading to the adoption of measures by individual Governments as a result of their collaboration in the work of the League, and by arousing public opinion, have helped to improve legislation and administrative practice. The eminently practical character of this Conference gives me the hope that its deliberations will lead, both directly and indirectly, to an improvement in the position which is under considera­ tion, and will lend a new impulse to social legislation and administrative efforts in this part of the world. With this hope, I have the honour to express to the delegates my sincerest wishes for the complete success of the Conference in the delicate and important task which it has been asked to fulfil.

3. Election of the President.

On the proposal of Mr. Jordan (Straits Settlements and Federated Malay States), Jonkheer A. T. B a u d (Netherlands) was elected President by acclamation.

4. Speech by the President.

The P r e s id e n t spoke as follows : In taking this chair and accepting the duty of presiding over this Conference, I desire first of all to tender you my sincere thanks for the honour you have done me and for the confidence you have placed in me. While I am convinced that I do not in any way deserve this honour, I am sure that should I, even in a small degree, prove worthy of your confidence, this will be entirely due to the assistance that I am sure you will kindly render me and to the most valuable support of

1 See Official Journal, November 1936, page 1203. — 9 M. Ekstrand and the excellent staff which has accompanied him on this long voyage. It is with this conviction that I venture to solicit your wholehearted support, both from you, ladies and gentlemen, and from the Secretary-General. For my part, I can assure you that I will do all I can to give credit to every opinion and to work for any solution satisfactory to the Conference. We have all of us listened with profound interest to the welcome from His Excellency the Governor-General, to the eloquent speech of the Director of Justice and to the message from the Secretary-General of the League of Nations. These addresses, and the lengthy and earnest preparation of this Conference to which M. Enthoven has referred, but above all the presence in this hall of so many distinguished delegates from Governments, missions and voluntary organisa­ tions, bear witness to the extensive interest which our gathering enjoys and to the high expectations which are fostered of our work. I feel sure that everyone will want to do his utmost to make the Conference worthy of this interest and to live up to these expectations. Our task is by no means an easy one. The problem with which we are concerned is to bring into effect a lofty human ideal, and such a task is always fraught with peculiar difficulties. The policies we are about to discuss and the measures we may be called upon to contemplate are intimately connected with the social and economic circumstances and the customs of numerous peoples. Those circumstances and those customs we must take into account as the foremost reality that will ever stand before us. But our task is also a modest one, for the object we are serving cannot be brought into effect by us. This is not a diplomatic conference and we are not called upon to draft a convention which, when adopted, can become of immediate effect. Our aim is but to exchange views and information and to devise better means for combating an ancient social evil in a most complicated world. It is my earnest hope that we may succeed, if not in solving, at any rate in making some progress in the solution of this problem. But even if we do, the result will be no more than a few resolutions that will have a long way to go before, by the work of others, they can lead to effective measures. It is therefore my conviction that the value of this Conference will not in the first place lie in its formal results, but that we must seek above all to cope with the intricacies of the problems that are at stake, in a spirit of understanding for the underlying difficulties, in our deep sympathy with the human misery which is involved in those problems and in our earnest desire to bring about such improvements in the conditions of humanity in this part of the world as will prove to be within practical reach. Let all the delegations enter upon every phase of this Conference with no other desire than to better conditions in their respective countries and to help others in finding the means to solve the problem in their own. I do not know and cannot foresee what each of us will take back from this place to his Govern­ ment, his mission or his organisation. But I can say, for myself, that no effort will be wanting on my part to foster, in our discussions, that spirit of understanding and practical idealism which alone can bring forth substantial results.

5. Adoption ol the Agenda.

The agenda of the Conference was adopted in the following form:

I. Closer collaboration and wider exchange of information between the police and other authorities in the different countries who are responsible for measures concerning the prevention of traffic in women and children in the East. II. Migration, in so far as this question affects the protection of migrants against traffic in women and children. III. Possibility of abolishing licensed or tolerated brothels in the East. IV. Closer collaboration between police and other authorities and private organisations in the East. V. Possibility of employing a larger number of women officials by the authorities responsible for the welfare of women and children. VI. Problem of women refugees of Russian origin in the Far East who have been, or are in danger of becoming, victims of the traffic.

6. Appointment of the Credentials Committee.

On the proposal of the P r e s id e n t , the Credentials Committee was constituted as follows :

Mr. A. B. J o r d a n (Straits Settlements and Federated Malay States) ; Prince S a k o l V a r a v a r n (Siam ) ; Professor Alberto C. Germano S. Co r r e ia (Portuguese India).

7* Election of the Vice-President and of the Bureau of the Conference.

On the proposal of Professor Correia (Portuguese India), Mrs. S. C. Mu k e r j e e (India) was elected Vice-President by acclamation. It was decided that the Bureau should consist of the first delegates of the Government delegations. 8. Adoption of the Rules of Procedure. The rules of procedure were adopted (see Annex i, page 77).

9. Credentials of the Delegates : Report of the credentials Committee.

After a suspension of the meeting, Prince Sa k o l V a r a v a r n (Siam), Chairman and Rapporteur of the Credentials Committee, read the following report :

The Credentials Committee appointed by the Conference met on February 2nd, 1937, at 11.45 a.m., in order to examine the credentials of the delegations taking part in this Conference. The Committee did me the honour of appointing me Chairman and Rapporteur. The Committee noted that the delegates of the following State produced credentials in good and due form, issued by the Head of the State : Netherlands.

The delegates of the following States have been accredited to take part in the Conference by a letter or telegram addressed to the Secretary-General of the League of Nations by the Minister for Foreign Affairs, by the permanent representative accredited to the League of Nations, or by a diplomatic representative of these Governments : United Kingdom (Governments of Straits Settlements and Federated Malay States and Government of Hong-Kong), China, India, Japan, Portugal (Portuguese India and Macao), Siam, United States of America (in the capacity of an observer).

At the invitation of the Council of the League of Nations, the following missions and interna­ tional voluntary organisations have appointed delegations or observers who will take part in the Conference in an advisory capacity : Sacred Congregation “ De Propaganda Fide ” (represented by an observer), Inter­ national Missionary Council, World’s Young Women’s Christian Association, World Alliance of Young Men’s Christian Associations, Salvation Army.

On the proposal of the Governments concerned, the Secretary-General has invited the following national, regional and local organisations to send delegates, who will also take part in the Conference in an advisory capacity : China : The World Red Swastika Society of China, the Children’s Home, Hsiang-Shan, Peiping, the China Child Welfare Association. India : Association for Moral and Social Hygiene. Netherlands Indies: Association " Ati Soetji ”, Indo-Europeesch-Verbond Vrouwen-Organisatie, Perkoem- poelan Pembasmian Perdagangan Perempoean dan Anak-anak.

The International Criminal Police Commission has appointed a representative to serve as an expert, the Governments represented at this Conference having agreed to the invitation which was addressed to that Commission. I also propose to the Conference to admit as expert Miss Martha Malthe. Miss Malthe served as a member on the Commission of Enquiry into Traffic in Women and Children in the East, appointed by the League of Nations to examine in Geneva the report of the Travelling Commission in the East. The report of the Credentials Committee was adopted.

SECOND MEETING.

Held on Wednesday, February 3rd, 1937, at 9.30 a.m.

President: Jonkheer B a u d .

10. Closer Collaboration and Wider Exchange of Information between the Police and Other Authorities in the Different Countries who are responsible for Measures concerning the Prevention of Traffic in Women and Children in the East (Item I of the Agenda) : General Discussion.

Mr. N o rth (Hong-Kong) said the position in Hong-Kong was described in the reply to the questionnaire (see Annex 4, page 84 ). The central authority was the Inspector-General of Police, and cases of traffic in Chinese women, which formed the majority, were dealt with by the Secretary for Chinese Affairs. The — II — liaison between these two officers was formed by a police officer who reported each day to the Criminal Intelligence Department. The Inspector-General communicated with outside administrations such as the police in Canton, Bangkok, etc. The Secretary for Chinese Affairs communicated directly with his colleague in Malaya and with foreign countries through the consular representatives in Hong-Kong. No difficulties had been experienced and the system had proved useful in individual cases. In Hong-Kong, there was no system of distributing information regarding traffickers or suspected traffickers. Certain difficulties were involved in that connection, to which he would refer at a later stage in the discussion.

Mr. J o r d a n (Straits Settlements and Federated Malay States) said the main problem in Malay was the prevention of traffic in women and girl immigrants from South China, most of whom passed through Hong-Kong. If they boarded a steamer in Hong-Kong for a Malayan port, they were examined by the Department of the Secretary for Chinese Affairs, who sent to the port of disembarkation in Malaya photographs of all female passengers, together with lists showing their names, ages, the object of their voyage, etc. The examining official in Hong-Kong indicated on the list any passengers appearing to him to be suspect. At the port of arrival, an officer of the Department of Chinese Affairs interviewed all the female passengers, giving special attention to all those marked as suspects. Suitable measures were then taken. This system did not cover female passengers who had joined the ocean-going steamer at an earlier port, though it did cover those from the Canton delta. All female passengers, however, were examined on arrival at a Malayan port. But in addition to being the main port for the arrival of immigrants for Malaya, Singapore was a distributing centre for the islands of the Malay Archipelago. The League of Nations Commission of Enquiry had found that a loophole occurred in the examinations at Singapore, since passengers transhipping at that port into small steamers for one of the adjacent Dutch islands could escape examination by the responsible officer. That was now impossible ; for not only were such passengers examined on arrival from China at the time of transhipment, but also all steamers arriving in Singapore from the neighbouring Dutch islands were examined. All female passengers arriving in Penang from Netherlands Indies ports were examined there. The only other W ay in which traffickers and their victims could arrive in Malaya was by train from Siam. A police officer travelled on every international express train from the frontier station of Padang Besar to Alor Star or Sungei Patani, making enquiries en route from and about each female passenger who might be concerned as a victim of the traffic. In every suspicious case, the woman or girl was removed from the train and further investigations were made, these being followed up by appropriate action. But very few Chinese women and girls came to Malaya by this route. The police officer also made similar enquiries into the cases of Siamese and other women travelling on the international express. Mr. Jordan might add that nowhere in the legislation of Malaya or in executive action was any differentiation made between women of different races. No case was known of traffic into Malaya of women from Northern India. The Labour Department was especially charged with the care of Southern Indians. All immigrants, both male and female, from that district passed through immigration depots at Avadi and Negapatam in Southern India, which were staffed by officers of the Labour Department. Immigrants travelled by steamers of the British India Company, which was under contract with the Malayan Govern­ ments, and inspectors of that Department travelled on all steamers. If females who might be the victims of the traffic got through the immigration depot on to the steamer, they were usually detected by those inspectors in the course of the voyage, and suitable measures were taken on the arrival of the steamer in Penang. But such cases were infrequent. It would assist the Malayan authorities if they could receive from responsible officials in Siam and China reliable information about women travelling to Malaya from those countries, on the same lines as the information regularly received from the Secretary for Chinese Affairs at Hong- Kong.

M. S u n g (China) desired to give a general view of the problem of the traffic in women and children in China. As an indication of the extent of the traffic, about 400 cases were discovered every year in Shanghai, about 200 in Peiping and a similar number in Amoy. These figures conveyed only a rough idea of the extent of the traffic, as the number of undiscovered cases was undoubtedly very large. The traffic centres were the following cities, of which Shanghai was considered the most important : Mukden, Dairen, Peiping, Tientsin, Tungkwan, Kaifeng, Amoy, Swatow, Hong-Kong, Macao and Shanghai. The practising of prostitution was forbidden by the Chinese Government, but the numbers victims were still very large. In Shanghai, there were about 5,000 and, if the clandestine prostitutes were included, the figure would be over 20,000. According to the statistics, there were ln I 935 altogether 2,462 prostitutes in Peiping, and 3,000, in 1928, in Tientsin. — 12 — Another group of such victims consisted of slave girls, who were found in varying numbers in the provinces of Kwangtung, Fukien and Chekiang, and also in Hong-Kong. According to a registration report in Shanghai in the year 1936, over 1,000 girls were registered. Chief among the causes of the traffic in China, in so far as the supply of victims was concerned, were the following three factors : (1) Natural calamities such as drought, flood, plague or famine ; (2) Ignorance and poverty ; (3) The sale of children by opium-smoking parents. In accordance with the International Agreement of 1904 concerning the Suppression of Traffic in Women and Children, and the International Convention of 1910, a central authority had been established in 1933 under the authorisation of the Chinese National Government, and all the public organisations throughout the whole country had been ordered to co-operate with the central authority in respect of the traffic. Since 1928, when the National Government was first established in Nanking, the Ministry for the Interior had ordered all the provincial governments, and particularly the municipalities of great cities in China, to combat prostitution, abduction, slavery and the traffic in women and children. In January 1936, regulations concerning the abolition of the slave-girl system had been promulgated by the Ministry for the Interior. In short, the Chinese Government was trying in every way to fight against the traffic. The work of economic reconstruction of China had been very successful. In addition, various public works were leading towards that reconstruction. The development of river conservancy was calculated to reduce floods. Many measures had been taken to improve the life of the farmers and would tend to reduce poverty. The New Life Movement in China was also effective in reforming the living conditions of the Chinese race as a whole. The National Government was doing its utmost to combat the evil of opium-smoking, and about 1,000 addicts in Northern China had been sentenced to death under the regulations promulgated by the National Govern­ ment. In addition, the new currency system had served to stabilise economic and financial conditions. Apart from Governmental measures, the voluntary organisations had shown great activity in combating the traffic. The most important were : (1) Anti-kidnapping Association of Shanghai, which had been established for twenty- four years ; it was reported that more than 10,000 victims had been rescued ; (2) National Child Welfare Association of China ; (3) World Red Swastika Society of China ; (4) Hsiang-Shan Children’s Home. The Chinese delegation had prepared a written report to be submitted to the Conference.1 That delegation was also willing to do its utmost to co-operate in all the discussions in the Conference.

Professor L a b r o u q u è r e (France) said there was no traffic in European women in Indo- China. A few isolated cases had been noted some years previously, but none since 1931. In Saigon, there were four or five French prostitutes. The question of local traffic was much more complicated ; certain special characteristics distinguished it from the traffic in general. In Indo-China, the population had ancient traditions and old customs which led to certain practices, such as the sale of children, which could scarcely be assimilated with the traffic in women and children. Some cases were known of children being sold to Tonking for despatch to China. In Indo-China, wages were very low and this was one of the causes which might explain these sales of children. Account should also be taken of the inferior position of women in Indo-China as compared with other countries. In Saigon, as in Hanoi, there were numbers of Chinese or Annamite singing girls whose social position it was often difficult to distinguish from that of prostitutes. Since the 1931 enquiry, the traffic had been subject to very strict supervision, and interesting information on the subject had been collected by the Directorate of Political Affairs and Public Safety. A few isolated cases of traffic had been noted, but in Tonking only. The information collected locally had been sent to Paris to the Ministry for the Colonies. According to the regulations in Indo-China, passports were only given after close enquiry into the morals of the applicants, and enquiries were also made as to the situation of all suspected passengers. Conditions for the entry of French and foreigners into Indo-China were strictly regulated. Close examinations were made at the ports, but Indo-China had a long land frontier where control was not easy. Social assistance organisations also helped to attenuate the results of the traffic. An Association of Social Assistance had been formed in Cochin-China ; it worked for the rehabilita­ tion of prostitutes. , Close collaboration existed between the authorities and private associations wherever special organisations had been able to establish themselves. In the French concession in Shanghai, there was no traffic in European women. A few cases of traffic in Chinese women had been reported ; they could be attributed to econom ic and psychological conditions. In conclusion, Professor Labrouquère said that the French Government was anxious to collaborate actively with the Conference on this matter and to study means of combating the traffic.

1 Document Conf./C.T.F.E./Orient 25. — 13 —

M. A k ag h i (Japan) expressed his appreciation of the work of the League of Nations in connection with the traffic in women and children. His Government had taken all possible steps against the traffic and had acceded to most of the Conventions on the subject, including that of 1904. Although Japan had withdrawn from the League of Nations, she had continued to send representatives to the Traffic in Women and Children Committee. She would co-operate sincerely in the present Conference, which she hoped would lead to satisfactory results. As regarded the changes which had taken place since 1931, M. Akaghi had no information regarding the number of women liable to become victims of the traffic, but he was aware that the number of Japanese prostitutes in Singapore and Hong-Kong had greatly decreased owing to the efforts of the Japanese Consulate in collaboration with the authorities concerned. There were no direct communications between Japanese police authorities and similar authorities in other Eastern countries in respect of the traffic in women and children. Hitherto, the communications had gone through the diplomatic channel and this system had given rise to no difficulties. The number of Japanese victims of the traffic had, moreover, greatly decreased and there was no inward traffic of foreign women into Japan.

M. Me y e r (Netherlands) gave an account of the work of the Government Bureau for combating the traffic in women and children and obscene publications. The Government Bureau for the suppression of traffic in women and children and obscene publications, established at Batavia, had been founded in 1915. In accordance with the first article of the International Agreement for the Suppression of the White Slave Traffic, signed on May 18th, 1904, at Paris, that office collected all information relative to the procuring of women or girls for immoral purposes abroad. The activities of the Government Bureau were, however, not limited to that international obligation of the Agreement of 1904, but also extended to the exploitation of women and children in general. The Bureau was therefore intended : (1) To be a centre of all Government action against immorality, without interfering with private life ; (2) To form a link between the judicial authorities and police on the one hand and the private associations concerned with the welfare of women and children on the other hand. In accordance with those principles, the following duties were performed by the Government Bureau. In the first place, the collection of information concerning the traffic of women and children in the Netherlands Indies and neighbouring countries and the different forms which that traffic assumed. The1 officers of the Government Bureau carefully followed all newspaper articles, advertisements, etc., relating to the traffic. Moreover, an arrangement had been made with the office for East Asiatic Affairs at Batavia that information on the question in Japanese or Chinese papers should be communicated to the Government Bureau as soon as possible. An arrangement had also been made with the police authorities all over the Netherlands Indies for a copy to be sent immediately to the Government Bureau of all records of raids of clandestine brothels by the police and of the trials of prostitutes and brothel-keepers, together with the photographs and official descriptions of such suspected persons. The Bureau was also connected with the various immigration committees dealing with the admission and residence in the Netherlands Indies of Netherlands nationals and foreigners. The immigration authorities informed the Government Bureau of the arrival of prostitutes and women traffickers and sent photographs and official descriptions of them. Last, but not least, the Bureau was in continual contact, through its inspecting officers, with the heads of the provincial and local administrations, the police, the immigration service, etc. If necessary, those officers investigated incidents concerning the traffic in women, neglecting of education, etc. Secondly, material thus collected was assimilated by the Bureau and a register of photographs was kept. Since people in Eastern countries often changed their names, photographs and finger-prints were the only means of identification and had proved to be indispensable m the campaign against the traffic. Moreover, the Government Bureau sent photographs and descriptions of all suspected persons to the domestic and foreign authorities who co-operated with it in the campaign'against the traffic in women (for example, the police, immigration service, consular authorities at Singapore, Penang, Hong-Kong, etc.). Description cards of suspects were generally sent to about seventy authorities. In the third place, the attention of domestic and foreign judicial officers was drawn to certain persons and facts disclosed in information found in the above-mentioned reports of the trials of clandestine brothel-keepers and prostitutes, and, in some cases, this led to a more accurate examination and prosecution. Fourthly, if it appeared that, in a certain district, brothels and prostitution were increasing, regulations drafted by the Department of Justice were sent to the council or municipality concerned, with a suggestion that they should be embodied in a local order. It was thus possible a°h h immediate and effective action ; for instance, the local authority was empowered to close rothel and to regulate street prostitution. Such local orders at present existed in most towns. , duty of the Government Bureau was to look after the victims of the traffic in women children. In the Netherlands Indies, that traffic included every action which aimed directly — 14 — at making a woman dependent on another person who desired to use her for prostitution with third persons. The traffic in women in the Netherlands Indies was chiefly in the hands of Chinese, and the victims were mostly Chinese. In recent years, there had been very little traffic in Japanese women in the Netherlands Indies, owing to the energetic co-operation of the Japanese Govern­ ment. Nor was the traffic in native women extensive. As in other countries, it had been observed in the Netherlands Indies that where the traffic was suppressed it assumed other forms. Some years previously, the “ wayang ” group (company of travelling actors) had been an important means of transporting Chinese women to the Netherlands Indies. The victims travelled under the mask of actresses. After arrival, they made one or two appearances on the stage and were then sent to clandestine brothels. By care­ fully controlling the “ wayang ” group in different places, the Government Bureau had succeeded in minimising the possibilities of delivering women to prostitution in that manner. At present, another trick was being tried. The Government of the Netherlands Indies had established a registry office for Chinese and had provided that Chinese marriages should be performed by a registrar. The Chinese traffickers tried to take advantage of that institution in the following way. The trafficker abroad wrote to his assistant in the Netherlands Indies — for example, at Semarang — that he wanted to smuggle in a Chinese woman. The assistant informed the immigration service that a certain woman who was coming from Singapore was his wife. If he were not believed, he offered to have the marriage performed by the registrar at Semarang, and that actually took place. After some time the woman, who thus possessed a marriage-certificate on stamped paper, was found in a clandestine brothel. The “ husband ” had, in the meantime, disappeared and tried to do the same thing in another place. Letters in Chinese which had been seized by the police showed that the assistants were familiar with the Netherlands Indies laws and the means of eluding them. Strict and constant supervision, in co-operation with all authorities involved, remained very necessary. The Government Bureau took action against all these and similar forms of traffic in women. The immigration committees, which exercised strict control, provided the Government Bureau with very important data. On the other hand, the Government Bureau transmitted to the local immigration committees all information that might be of use for combating the traffic in women and children. Further, information from immigrants about relatives abroad, their reputation, etc., was checked by the Government Bureau. If no proof of reliability were obtainable, the persons involved were generally deported, unless there were grounds for placing the victims in one of the institutions of the country. In doubtful cases, temporary certificates of admission were granted, for six months at most. In that way the persons could be controlled by the Government Bureau and police for a considerable period. If it appeared during that period that they had come to the Netherlands Indies for the purpose of prostitution (traffic in women, etc.), they might be deported immediately.

The remaining duties of the Government Bureau were as follows : Repatriation of the victims of the traffic as far as possible. Assistance to and supervision of associations maintaining homes for victims of prostitution. Repression of the traffic in obscene literature. The Bureau had been entrusted with that task since 1922. Discussions with the authorities gave the impression that that traffic was not extensive in the Netherlands Indies. The establishment of the Government Bureau at Batavia as a section of the Department of Justice was extremely satisfactory. In that way, it was in close touch with the Government and the other services whose co-operation was necessary to attain its object — for example, the immigration service, the labour inspection, the office for East Asiatic Affairs, the Public Prosecutor, the orphans court, etc. Meanwhile, as the official who carried out the daily control was responsible for the Govern­ ment child welfare service, an equitable division of labour and a harmonious co-operation were guaranteed between the services dealing with the protection of women and children.

M. S am paio (Macao) said the delegates of the Portuguese colony of Macao desired, personally and on behalf of their Government, to express to the Netherlands authorities their sincere appreciation of the welcome extended to them at Bandoeng. He then explained the position of Macao in respect of the first item on the agenda. In that colony, the suppression of the traffic in women and children was in the hands of the commissariat of police and the municipal administration. Those authorities met with a certain measure of success. Although there was intensive and unrestricted movement between Macao and the neighbouring towns, Hong-Kong and Canton, Macao did not offer a favourable soil for the practices of traffickers, not only because strict supervision was exercised by the authorities of the colony, but also because Macao, in view of its special position, could not be a place of passage for victims of the traffic. It was not a place of call on routes generally used by traffickers. Neither agencies for placing women and children for immoral purposes nor agents working individually had ever been found in Macao. The authorities there immediately entered into communication with the authorities of neighbouring towns as soon as they got wind of any — 15 — case of traffic likely to interest them. The co-operation between the authorities of Macao and of neighbouring towns was always very effective, since it involved a rapid and accurate exchange of information. The delegation of Macao could state with real satisfaction that there was very close contact between the authorities of that colony and the Hong-Kong authorities.

Professor Co r r e ia (Portuguese India) also thanked the Netherlands authorities for the welcome accorded at Bandoeng to the delegation of Portuguese India. With regard to the first item on the agenda, he stated that there was no intémational traffic in women and children in Portuguese India. Although the women of Portuguese India were not victims of the traffic, there was the closest possible co-operation between the Portuguese authorities and those of British India. At Bombay, the consular authority and the emigration commission created by the general Government of Portuguese India on September 8th, 1932, endeavoured to prevent women, and in particular girls, from falling into prostitution, and did their utmost to release those who had fallen. Moreover, as regards Hindoo women of the devadasi caste, who, from birth, were destined to prostitution, the general Government of Portuguese India had, in a Decree of July 31st, 1930, prohibited all ceremonies initiating such girls to a life of prostitution. This measure of social prevention had given very good results approximating to the aim which it was desired to attain, in spite of the fact that the situation in Portuguese India as regards its social relations with British India was similar in that respect to that of French India.

Prince S a k o l V a r a v a r n (Siam) said that, in accordance with the 1904 Agreement, the central authority in Siam was the Director-General of Police. In other respects, the powers were divided between the two police departments known as the Immigration Service and the Criminal Investi­ gation Service. Traffic, as practised in Siam, related particularly to China and to a small extent to British Malaya, and there was therefore an exchange of correspondence and also co-operation between the Siamese authorities and those of Hong-Kong and British Malaya. The Siamese Government had proposed to authorise the Director of the Immigration Service to correspond directly with his colleagues abroad and with the authorities of ports of embarkation of emigrants desiring to proceed to Siam. After studying the documentary material supplied by the Secretariat of the League regarding the centralisation and standardisation of the organs responsible for combating the traffic, he had been confirmed in his opinion that the system at present adopted by his country was the most suitable. Prince Sakol Varavarn thought it a very valuable suggestion that the photographs of offenders and all useful details should be added to the descriptions exchanged by the authorities. He then pointed out that it would be more difficult to send to Malaya definite information of the kind supplied to Hong-Kong, since the movements of persons were less easy to supervise by the land route than by the sea route. Special control could, however, possibly be exercised over suspects. In Siam, the immigration services were working satisfactorily, but there was as yet no well developed organisation dealing with emigration, except as regards the control of passports, which was carried out in accordance with a resolution of the League of Nations. An arrangement involving a system of identification cards with photographs was, however, being considered between the British and Siamese authorities, but it was not proposed to apply this system beyond a distance of about 25 kilometres from the frontier. In any case, the suggestion put forward by the delegate of British Malaya would be noted and Prince Sakol Varavarn would not fail to inform his Government of the desire of the British authorities. The desire for co-operation which had been expressed could be complied with by authorising the competent officials of the various countries to correspond, in accordance with the views of the Siamese Government, with the authorities of the ports of immigration. He was prepared to discuss the details of the arrangements which might be reached on this subject either in a full meeting or in a committee.

Mrs. M u k e r j e e (India) said that, under Article 1 of the 1904 Agreement, the contracting parties undertook to establish an authority charged with the co-ordination of information relative to the procuring of women or girls for immoral purposes abroad. As it appeared probable that action required under the 1904 Agreement would have to be mainly in the maritime provinces, central authorities for the purposes of Article 1 of the Agreement were designated in those provinces only — namely, the Commissioner of Police, Madras, for the port of Madras ; the Commissioner of Police, Calcutta, for the port of Calcutta ; the Commissioner of Police, Rangoon, for the port of Rangoon ; and the Secretary of the Home Department of the Government of Bombay for the ports of Bombay and Karachi. Rangoon (Burma) would no longer be under the Government of India after April 1st, 1937. As international traffic was practically non-existent in India, the Government of India considered that this question was of no great interest to the country. The appointment of a woman liaison officer for combating the traffic in the East and facilitating contacts between central authorities, missions and private organisations was, in her opinion, very desirable. Mrs. Mukerjee then read the following passage from the reply of the Government of Bombay to the questionnaire, as indicating the strict regulations regarding entry into India (see Annex 4, Page 89) : “ In accordance with Foreign Office circular No. S.6675, dated May 8th, 1934 British consuls abroad generally make previous references to the Government of India before visas for India are granted to theatrical or circus artists, whether male or female. On receipt of a reference from the consul, the Government of India consults the local — i6 — government, which consults the Commissioner of Police, Bombay. Ift he same procedure were adopted by British consuls abroad in respect of all women of foreign nationality regarding whom doubt may exist whether they propose to visit India as theatrical artists, as private employees or as tourists, it would be easier to prevent the entry of foreign prostitutes into this country.” The Portuguese delegate had informed the Conference that the authorities of Portuguese India prohibited the ceremony of initiation to the life of prostitution, in which girls of the devadasi caste formerly took part. The introduction of a similar measure had been taken up by a woman member of the Council in Madras — Dr. Muthulaksui Reddi. In conclusion, Mrs. Mukerjee thanked the Government of the Netherlands Indies for its cordial welcome to the Government of India and to herself. M. Meyer, the delegate of the Nether­ lands Indies Government, in his statement to the Conference, had just given a detailed report of the measures taken by that Government to cope with the evil, which was an eye-opener. As a woman deeply interested in questions affecting the welfare of women and children, she hoped that all Governments would take similar measures of precaution in regard to and care for the victims.

Mr. N orth (Hong-Kong) said he was not concerned at the moment with the question of information regarding traffickers or suspects, except in so far as it related to individuals of Chinese nationality. As regarded traffic agents of other nationality, the Government of Hong-Kong had at its disposal an entire system of identity documents which greatly facilitated the control. Traffickers in girls of Chinese origin more easily escaped the vigilance of the authorities. If his information were correct, these traffickers did not form part of big organisations, but worked individually and tried to obtain one or two girls in order to ensure an income in their old age. Others forced one or two girls into prostitution in order to obtain money. In any case, the traffic was on a small scale, and it was very difficult to identify the offenders, whose faces resembled each other and whose names changed from one day to another according to the Eastern custom. Finger-prints would possibly constitute a means of identification. It remained to be seen whether the central authorities were in a position to apply that system. All the other methods, including photographs, were not always satisfactory. As regarded Hong-Kong in particular, it was especially Cantonese women who were victims of the traffic which took place there, and it was sometimes possible to distinguish either the offender or the victim on account of their way of speaking or some distinctive mark such as a scar, etc. Up to the present, the authorities of Hong-Kong did not supply the detailed information mentioned by M. Meyer, but if the Conference found that the system recommended by the Nether­ lands delegate was of use, the authorities would certainly be glad to adopt it.

Mr. J o r d a n (Straits Settlements and Federated Malay States) had no doubt that most of the delegations present would be in a position to suggest improvements in matters of detail in the systems at present in force. It would certainly be easy as regards women leaving China for the Netherlands Indies and the Straits Settlements. But the main problem, as the delegate of Hong-Kong had pointed out, was to combat the traffic in women from South China. Was it possible to improve in this respect the existing position in regard to Chinese women emigrating to British Malaya ? In order to do so, action should be taken, not only at Singapore, which was the distributing centre of women and girls intended for the Malay Archipelago, but it was necessary to go back to Hong-Kong, where all the girls from Southern China whom the traffickers wished to place, not only in Malaya, but also in Siam, Indo-China or the Philippine Islands, were collected. A conference on that subject had been held at Hong-Kong and had given very good results. Nevertheless, as Hong-Kong was only one stage on the road to be followed by girls intended for prostitution, it was necessary to go still further back and to come into contact as soon as possible with the Chinese girls leaving their families. When those girls arrived at Singapore, for instance, the trafficker had had more time than when they arrived at Hong-Kong to instruct them as to the tale they should tell the authorities and to frighten them with all kinds of threats in case they intended to speak the truth. Mr. Jordan wished to take this opportunity of paying a tribute to the improvements introduced by the National Government of China in the ten years that it had been in power. He hoped that the desire for collaboration shown by that Government would make it possible to examine the girls of South China wishing to go abroad, even before they left their own country. As regarded the scale on which the traffic was practised, the experience of the Malayan authorities was somewhat similar to that of the delegate of Hong-Kong. In almost all cases, the traffic was the work of individuals who, for the sake of gain, delivered one and not several women up to prostitution. It was true that a trafficker who had once succeeded in deceiving the authorities would make a fresh attempt. But, if he were caught, or if the victim were discovered, he was sentenced to a long term of imprisonment and deported. That measure, which at first sight appeared to be satisfactory, was only satisfactory to the State which applied it ; for if the trafficker returned to his own country, for instance — to Kwangtung — there was nothing in the provisions at present in force to prevent him from resuming his traffic in the direction of Indo-China or Siam, since he was not obliged, in order to send women to those countries, to pass through Singapore or any other port at which he was forbidden to stay. - ï? - In order to do really useful work, therefore, the competent officials should inform the authorities of the trafficker's country of origin of the measures taken against him, and they should send them all particulars necessary for his identification. Moreover, this would not be sufficient. A central bureau should be opened, in order to collect all particulars regarding Eastern traffickers. No doubt it might be difficult for an official to recognise among a thousand or two thousand passengers disembarking from a steamer one of the seven hundred persons whose photographs might be contained in his records, but the question presented a practical aspect which had not been overlooked in the campaign against counterfeiting currency. Some six years previously, the Government of the Straits Settlements had invited the consular authorities of the Far East to meet at Singapore, in order to consider means of combating the action of coiners counterfeiting the coinage of certain States in third countries. That Conference had led to excellent results and had decided to open an office at Singapore for the exchange of information regarding counterfeiting currency. The Governments which had acceded to the agreement sent very complete records to Singapore in respect of the offenders. In that connection, Mr. Jordan showed the Conference the document which had been drawn up by the French autho­ rities in Indo-China and which contained, in addition to a photograph of the accused person, all necessary particulars regarding the offences of which he had been guilty. After that system had been applied for three or four years, there had been a marked decline in the counterfeiting of currency. The action taken against coiners could betaken with greater justice against persons engaged in the traffic in women and girls. If the Conference considered that the proposal he had just made had any practical value, he would suggest that it should consider the possibility of opening a Far-Eastern Bureau at Hong-Kong under the auspices of the League of Nations for the exchange of information regarding traffic in women and children. Mr. Jordan proposed that this bureau should be placed under the auspices of the League of Nations, because the latter had successfully organised a bureau for the exchange of epidemiological information at Singapore. Even if the results obtained from the new organisation did not prove to be excellent from the outset, there would be no reason for discouragement, since the system might with time be improved. Moreover, if it were not desired to entrust the organisation of the bureau to the League of Nations, he would have no objection if the Government of Hong-Kong or some other Government were entrusted with it.

M. Ch e n (China) said that China had not only created a central authority at Nanking but that the police authorities in North China were displaying great activity, as was evident from the number of cases discovered at Amoy and elsewhere. Those discoveries had been made particu­ larly in the ports. But the Chinese authorities, which were so active in the interior, had no power in the Chinese territories under foreign jurisdiction. It was known that at Shanghai, for instance, the greatest number of prostitutes were found in the international settlement and the French concession. Ineastem Hopei, the formation of real centres of gaming, opium-smoking and prostitution had also been observed. It was known that, in South China, the opium traffic was one of the factors in the traffic in women. That traffic was carried on particularly in the places which were not under the authority of the Chinese Government. That Government was prepared to give its co-operation in order to suppress the opium traffic.

M. Co e r p e r (International Criminal Police Commission) thanked the Director of the Social Questions Section of the Secretariat of the League of Nations and the Netherlands Government for having furnished the International Criminal Police Commission with an opportunity of being represented at the Conference. Personally, he had no practical experience of traffic in women, since, in his country, that question was not dealt with by the police. He drew the attention of the Conference to document Conf./C.T.F.E./Orient 10, which described the kind of activity in which the International Criminal Police Commission was engaged ; its aims were entirely in agreement with points I and V of the agenda of the Conference. It might be considered that an organ already existed in Europe for co-ordinating efforts to suppress the traffic in women. M. Coerper then explained the main lines of the organisation which had been set up for combating the counterfeiting of currency, and asked whether it would not be possible to create a central bureau in the Far East on the same lines, with the object of centralising information on the traffic. The creation of that bureau in Europe would be open to some disadvantages on account of the distance and the slowness of communication and also on account of the lack of experience of European officials in respect of the traffic in the Far East. The central bureau might be created under the auspices of the League of Nations or connected with a national authority. Its duty would be to collect all information relating to the traffic, to classify it, and to distribute it. It would make up index cards for each trafficker who was discovered, and it should remain in close contact with the central bureau of the International Criminal Police Commis­ sion, since the agents of the traffic were very frequently criminals in other respects. Lastly, the bureau should deal with the criminal, and not the social, aspect of the traffic. In conclusion, he said that the International Criminal Police Commission would be always prepared to lend assistance to an undertaking of that kind.

:i- Appointment ol a Sub-Committee to examine the Suggestions made by the Delegates of Siam and of the Straits Settlements regarding Item I of the Agenda.

On the proposal of the President, the Conference decided to constitute a Sub-Committee, consisting of one representative of the Governments of each of the following countries : Straits — i8 Settlements, Siam, China, Japan, France and the Netherlands, to consider the suggéstions put forward by Prince Varavarn and Mr. Jordan. The representative of the International Criminal Police Commission was attached to the Sub-Committee as an expert. It was also agreed that any Governmental delegate interested in the question might attend the discussions of the Sub-Committee.

THIRD MEETING.

Held on Thursday, February 4th, 1937, at 9 a.m.

President : J o n k h eer B a u d .

12. Telegram from M. von Schmieden, Secretary of the Commission of Enquiry in the Far East.

The P r e s id e n t read a telegram from M. von Schmieden, Secretary of the Commission of Enquiry in the Far East, expressing his best wishes to the Conference for the success of its work.

13. Credentials of the Delegates : Second Report of the Credentials Committee.

Prince S ak o l V a r a v a r n (S iam ), Chairman and Rapporteur of the Credentials Committee, read the following report : The Credentials Committee appointed by the Conference met on February 4th, at 9 a.m., in order to examine supplementary credentials which have reached the Secretary-General of the Conference. It considered that the delegate of France had presented credentials in good and due form. It also agreed to admit the representative of the Pan-Pacific Women's Association, which is one of the international associations invited to take part in the Conference in an advisory capacity. The report was adopted.

14. Closer Collaboration and Wider Exchange of Information between the Police and Other Authorities in the Different Countries who are responsible for Measures concerning the Prevention of Traffic in Women and Children in the East (Item I of the Agenda) : General Discussion (continuation) : Report of the Sub-Committee concerning the Creation of an Information Bureau in the East.

Mr. J o r d a n (Straits Settlements and Federated Malay States) read the report of the Sub- Committee appointed at the previous meeting to consider the suggestion for the creation of an Information Bureau in the East (see Annex 2, page 78).

M. P e r e ir a (Macao) wished to state that his delegation agreed with the suggestions made at the previous meeting by the delegates of Hong-Kong and the Straits Settlements, and hoped that the means of putting the proposals into practice would soon be found. Pending the result of those efforts, his delegation considered that measures should be taken to accelerate still further communications between the authorities dealing with the suppression of the traffic in each country by reducing diplomatic and bureaucratic formalities to a minimum.

M. Ch e n (China) considered th a t the proposed bureau for the exchange of information regarding traffickers was not sufficient. F or instance, if an offence were committed in the Straits Settlements and information were sent to the central bureau to be communicated to the authorities in various countries, it was p rob a b le th a t such information would arrive too late. Information should rather be sent by telegraph to the p ort a t which the offender would land. He desired to make a further concrete proposal to the effect that a liaison officer should be appointed by the League, in order to advise and assist the authorities in various countries and to arrange for closer co-operation. It was highly desirable that the foreign concessions and international settlements should co­ operate more closely with the Chinese authorities, and he suggested that, for this purpose, there should be one central authority in each concession or settlement. It should be the duty of those central authorities to take steps for th e suppression of the traffic and to co-operate with the Chinese authorities and the central authorities in other countries.

Professor Co r r e ia (Portuguese India) agreed with the proposal made by the delegates of Hong-Kong and Malaya, and also with the suggestion for the appointment of a liaison officer. He wished, however, to make a practical proposal to the effect that complicated descriptions of offenders should be replaced by records of finger-prints. It was obvious that photographs were — ig — of little use and the only method which gave reliable results was the use of finger-prints. He suggested that a telegraphic code should be designed for the transmission of finger-prints.

Mr. J o r d a n (Straits Settlements' and Federated Malay States) observed that a new proposal had been placed before the Conference for the appointment of a liaison officer. He was not clear as to the duties of such an officer. Possibly, those duties might be usefully considered by a Sub-Committee. He thought there was some confusion in the minds of the delegates between the functions of the information bureau and those of the liaison officer and some misunderstanding as to the duties of the bureau. He thought, however, that these points were made clear in the Sub-Committee’s report. He would like to state that there was no intention that the officials of the bureau should take any executive action, such as the arrest of fugitives wanted by any country. The intention of the Committee was that the bureau should merely record and pass on information. If it went further than that, it would be trespassing on the duties of the police authorities. Those remarks also applied to the proposed liaison officer. Mr. Jordan could not see how the bureau or the liaison officer could be of assistance in the hypothetical case mentioned by the Chinese delegate. The latter had assumed that, when a criminal was wanted, it was usually known on what vessel he was travelling and to what port he was bound. That was not the case in practice. When such information was available, a procedure already existed. There was also a method in existence for the telegraphic transmission of finger-prints. It could be used wherever the Henry system of finger-prints was the system in force, and a number of Far-Eastern countries already took advantage of it. At the previous meeting, he had made a proposal for a wider exchange of information and an improvement in the means of checking the traffic in women and girls. His suggestion had been that an examination should take place by Chinese officials, who were the people most suitable for protecting and examining women going abroad, and that that examination should be the first link in a chain of examinations between the time when the woman left her home and the time when she arrived at her destination. He had suggested the formation of an Information Bureau as a subsidiary proposal. Mr. Jordan was somewhat disappointed that his suggestion regarding the examination of girls in China had not been taken up by the Chinese delegate. Instead of that, the latter had referred to the difficulties created through the existence of foreign concessions and international settlements in China. In the main, those difficulties were of a political nature with which the present Conference was not competent to deal. It had met with the humanitarian aim of preventing more traffic from taking place. Mr. Jordan's suggestion referred to girls leaving the Canton delta and not passing through a foreign settlement. If the Chinese delegate could give a reply on that point, a considerable advance might be made. He had understood the Chinese delegate to state that there were difficulties in the way of the exchange of information between the international settlements and the Straits police. Mr. Jordan could state that such difficulties did not exist and that an exchange of information was taking place. He had, perhaps, incurred some odium on account of his plain speaking. He had spoken in that manner deliberately with a view to obtaining practical results.

Professor Co r r e ia (Portuguese India) said he had not questioned the existence of a system of telegraphic transmission of finger-prints, but had merely proposed that the system should be simplified and generally applied between all countries of the Near East, the Middle East and the Far East.

M. Ch e n (China) observed that Mr. Jordan had referred :

(1) To misconceptions regarding the functions of the liaison officer ; (2) To the importance of examining victims before they left China ; and (3) To the political implications of his remarks.

With regard to the first point, it was not M. Chen’s intention that the liaison officer should interfere with, or in any way supervise, the authorities. He should merely give advice and assistance whenever necessary. He would be a connecting link between the various authorities. A liaison officer was more urgently needed than an information bureau, although the Chinese delegation had agreed to the latter proposal.. M. Chen then quoted passages from the report by the Commission of Enquiry proving the lack of co-operation between China and the foreign concessions and international settlements. In his view, the liaison officer should not be stationary but should visit various places and assist in the co-operation between the various authorities. With regard to the examination of Chinese emigrants before leaving China, the Chinese local authorities at every Chinese port were charged with the duty of issuing passports to emigrants. In addition, a Bureau of Overseas Chinese Affairs had been established in each of the following cities: Shanghai, Amoy and Canton, and entrusted with the duty of issuing credentials to emigrants and rendering assistance in the examination. Passports were, however, not issued to Chinese nationals proceeding to Hong-Kong. — 20 — As regards the third point, M. C.hen had merely desired to emphasise the difficulty of the problem and his remarks had no political implication. The Chinese Government had prohibited prostitution, and the foreign concessions and international settlements had now become the source of the traffic. He did not desire to stir up political troubles, but was merely anxious for co-operation with the foreign concessions.

Mr. J o r d a n (Straits Settlements and Federated Malay States) said that the Chinese Government had only appointed a central authority in 1933. Up to that time, apparently, the Chinese Government had had no activity in respect of the traffic. Now that Chma had taken steps, it was to be hoped that co-operation with the concessions would begin. He did not know how long the Bureau for Overseas Chinese Affairs had been opened, but suggested that the contention regarding passports was not of great importance, since China had full power to issue passports to her own nationals. He therefore did not understand the suggestion that more should be done in Hong-Kong to prevent victims from going abroad. The report by the Commission of Enquiry had stated that the examination which took place in Hong-Kong was as good as possible. He objected to the statement that the source of the traffic lay in the foreign concessions. If Chinese girls entered the foreign concession and became prostitutes, the concessions could not be considered as the source.

M. Ch e n (China) said the Chinese authorities did not feel that they should issue passports to Chinese proceeding to Hong-Kong. The Bureau for Overseas Chinese Affairs was a recent formation. He thought it dated from 1933 or 1934. He apologised for the misuse of the word “ source”. The foreign concessions might be considered rather as a reservoir of victims of the traffic.

Mr. N orth (Hong-Kong) suggested that any discussion of immigration and emigration through Hong-Kong should be dealt with under the second item of the agenda.

The P r e s id e n t agreed.

Professor L a b r o u q u è r e (France) agreed that close co-operation between the French concessions and China was necessary in connection with the matters under discussion. The concession of Fort Bayard was under the administration of the Governor-General of Indo-China. The report from the Administrator stated that great efforts had been made and the traffic was decreasing. In Shanghai, the position was more difficult. Some years ago, there had been numerous cases of traffic, which were possibly due to the lack of co-operation at that time, but conditions had improved in the last three years. In respect of both those territories, the French administration was willing to co-operate fully with the Chinese authorities.

Mile. Y e n (China) pointed out that the first item on the agenda called for closer collaboration. This matter was already dealt with in the report prepared by the Sub-Committee. The proposal to appoint a liaison officer was merely a matter of detail in connection with such doser collaboration. As a further reason for the appointment of a liaison officer, she quoted a report from the foreign women's organisations in Shanghai referring to the lack of co-operation and the complexity of the legal position. There was no obligation to apply Chinese legislation in the foreign conces­ sions and international settlements, and that was a further reason for the appointment of a liaison officer who might bring about closer co-operation. In the foreign concessions there were many cases in which girls were kidnapped and sold for prostitution, and this was a contributory factor in the traffic. In addition, 14% of the traffic was due to opium-smoking, which was thus a fundamental factor. Mile. Yen suggested that the question of the appointment of a liaison officer should be referred to the Sub-Committee. Mile. Yen's proposal was adopted.

The P r e s id e n t recalled that certain suggestions were contained in the report of the Commission of Enquiry, in the replies of Governments to the questionnaire and in other docum ents sent to the Secretariat of the League of Nations. Some of those suggestions related to point I of the agenda. In that connection, he read the resolution adopted by the regional conference held at Hong-Kong in July 1935 (docum ent Conf./C.T.F.E./Orient 3, pages 7 and 8). He asked the delegations interested in the question to express their views.

Mr. N orth (Hong-Kong) stated, with regard to the first of the Hong-Kong recommendations, that the central authority for Hong-Kong w as the Inspector-General of Police. In addition, a ll matters affecting Chinese, including those connected with traffic in Chinese women, fell within the province of the Secretary for Chinese affairs. The Chinese community was fully aware of this. Referring to a further point in the recommendations, Mr. North pointed out that in fact an exchange of information regarding suspected cases existed ; he was not, however, completely satisfied regarding the measures taken to communicate such information. He proposed later to speak at greater length on this point, since the Conference might be in a position to deal with it now. In any case, he intended to see what could be done in future at Hong-Kong. — 21 —

The P r e s id e n t then drew the attention of the Conference to another point referred to b y the regional conference of Hong-Kong. It related to the position of a girl sent back to Macao at the expense of the authorities of that port. What was to prevent the trafficker from sending her to Bangkok or elsewhere under another name ? The chairman of the Regional Conference had considered that this would be a question for the Conference of Central Authorities in Eastern Countries (see document Conf./C.T.F.E./Orient 3, page 9).

Mr. J o r d a n (Straits Settlements and Federated Malay States) thought the difficulty referred to by the Hong-Kong Conference would disappear if the proposal to create an information bureau were adopted by the present Conference. The States parties to the agreement would receive detailed information, the authorities of the State to which the girl was repatriated would be kept informed of the matter, would know the name of the trafficker and could consequently prevent him from sending the girl under another name to another territory.

Prince S a k o l V a r a v a r n (Siam) entirely approved this idea. He thought, moreover, that this was rather a question of migration coming under item II of the agenda. He then pointed out that the report of the Commission of Enquiry referred to a loophole in the system of control, since the traffickers would be able to evade the measures taken by sending their victims to Hoi Hao, in the island of Hainan, and from there outside China. In that connection, the only remedy for the existing situation would lie in co-operation with the steamship companies. He hoped that the companies would realise the necessity of granting their assistance.

M. S a m pa io (Macao) pointed out, as regards the imaginary cases considered by the Regional Conference of Hong-Kong, that if, in any port, a girl questioned by the authorities submitted identification papers, it would be possible to obtain information about her from the authorities of her country of origin. If the girls were accompanied by a trafficker, he could be arrested and suitable steps could be taken to put an end to his misdeeds.

The P r e s id e n t pointed out that the Hong-Kong Conference had made other recommendations, some of which related to item II of the agenda. Two others, however, related to item I, but should, he thought, be referred to the Sub-Committee for convenience of discussion. The President’s proposal was adopted.

Professor Co r r e ia (Portuguese India), referring to the imaginary case dealt with by the Hong-Kong Conference, pointed out that if the girl in question were really a victim of the traffic and could not disembark at Singapore, it should not be difficult for the authorities of that port to ascertain the name of the trafficker. It was their duty to arrest him, and it would therefore appear to be difficult for such a person to continue his journey to Bangkok.

Mr. J o r d a n (Straits Settlements and Federated Malay States) thought that the imaginary case in question was scarcely in accordance with actual facts. It was not the custom at Singapore to refuse a permit of disembarkation to possible victims of the traffic. On the contrary, the victim was always taken from the vessel in order to break her connections with the trafficker, and she was looked after until it was known that she was in safe hands. In practice, the imaginary case mentioned by the Hong-Kong Conference could not arise. It was hardly necessary to add that the Singapore authorities did not leave the trafficker on board the vessel, once they had discovered him.

Professor Co r r e ia (Portuguese India) thought this was a question for an international agreement under which the port authorities would be entitled to go on board vessels in order to arrest traffickers.

The P r e s id e n t declared the discussion on item I of the agenda closed, it being understood that all the suggestions submitted during the discussion were referred to the Sub-Committee.

- Migration, in so far as this Question aîîects the Protection of Migrants against Traffic in Women and Children (Item II of the Agenda) : General Discussion.

Mr. N o rth (Hong-Kong) said that the examination of women and child emigrants at Hong- Kong was governed by legislation based on the Chinese Passengers Act of 1855. This examination only related to emigrants — that was to say, passengers on so-called emigration ships — i.e., vessels transporting more than twenty Asiatic passengers and bound on certain specified voyages. This control was not exercised over vessels proceeding to the ports of China or Indo-China, and there were loopholes in the system. If, for instance, a vessel transported less than twenty Asiatics, they were not examined. In addition, first and second class passengers were not regarded as emigrants. Moreover, emigrants arriving from Chinese ports and passing through Hong-Kong were not examined there. There was, he understood, an examination by the Chinese authorities at Swatow. It would be asked why this examination had been made so incomplete. The reason was very simple ; in order to examine the 10,000 persons who entered and left Hong-Kong every day, a large staff of officials would be required, and this might be very costly. — 22 — It had been suggested that the Hong-Kong authorities should undertake to discover the traffickers. The authorities in question had no intention of shirking their duty, but those who had expressed this idea certainly underestimated the difficulty of putting it into practice. The women victims of the traffic arrived at Hong-Kong possibly after a journey of several weeks and merely passed through. If a woman were suspected, the inspector who questioned her had no means of checking her statements. She had, moreover, always a story ready, which it was impossible to control. The only practical action was to warn the authorities at the pert of destination when it was known that a suspected girl was on board a vessel. In this connection, the Government of Hong-Kong had concluded with the Government of Singapore an arrangement which worked to the satisfaction of both. Suspected women could be indicated by a special note on the list of passengers which a ship’s officer handed to the boarding officer on arrival at Singapore. It was sufficient to state against the name of a passenger that she required protection, in order to arouse the attention of the emigration official. This was, however, a system which had not yet been generally adopted.

M. Ch e n (China) drew the attention of the Conference to the following passage in the report by the Commission of Enquiry into Traffic in Women and Children in the East : 1 " It was suggested that, on lines similar to those of Swatow, embarkation certificates might be issued, after enquiry, by the Mayor of Shanghai, for Chinese women and children leaving for abroad, or for the principal ports of emigration of South China...". It was clear from this that the examination referred to by Mr. North took place at Swatow. The delegate of Hong-Kong had emphasised the difficulty of checking the statements of suspected passengers. In that connection, the Chinese delegation wished to state that the Chinese Government would be only too glad to lend its co-operation with a view to facilitating the enquiries. In conclusion, he stated that his delegation entirely approved the very valuable suggestion made by Mr. North with regard to the notes on lists of passengers. Professor L a b r o u q u è r e (France) said that the Decree of August 31st, 1933, laying down conditions for the admission of French nationals and foreigners into Indo-China (promulgated on March 28th, 1934), provided for very strict measures, which were also applicable for the territory of Kwangchow-Wan. The report of the Commission of Enquiry stated that Saigon was a centre of the traffic in the East, and the Decree of 1933 had been issued for the very purpose of preventing such traffic. Under the terms of that decree, French nationals and persons under French protection proceeding to Indo-China were compelled, when applying for their passage ticket, to deposit with the transport company the amount of the fare from Indo-China to France. That rule did not, however, apply to persons originating in Indo-China or Kwangchow-Wan, to their families and to certain other categories of travellers. As regards the conditions for admitting foreigners into Indo-China, a distinction should be made between non-immigrants and immigrant foreigners. Non-immigrant foreigners were the agents of foreign consular services, foreign officers, officials, employees and agents travelling in Indo-China with the authorisation of their Government, travellers in transit, etc. Non-immigrant foreigners were admitted into Indo-China on presenting a passport with the visa of the French diplomatic or consular authorities, unless otherwise decided by special conventions. Any foreigner requesting a visa as a non-immigrant, or, if he were not subject to the visa formality, pleading that he was a non-immigrant, was compelled to sign a declaration, a specimen of which was contained in the decree, either before the French consular authorities in his country of origin or, if he lived in France, before the consular authorities of his country. The company would not be compelled to repatriate at its own expense a traveller who had been refused admission, unless it had accepted him without the declaration endorsed by the consular authorities and accompanied by the embarkation permit. The following persons were considered as immigrant foreigners for the purposes of the decree : foreigners proceeding to Indo-China with the intention of exercising an occupation or trade, to work as manager, employee, foreman, workman, etc., or to work as servants or labourers and, in general, all foreigners who were not regarded as non-immigrant. Immigrant foreigners seeking admission to Indo-China must possess a passport with the visa of the French diplomatic or consular authorities, furnish an extract from their judicial record and submit a recent medical certificate. While strict rules were applied for admission into Indo-China, there were also conditions regarding the residence of foreigners in the territory. Every immigrant more than 15 years of age was compelled, within forty-eight hours of his arrival, to apply to the competent department for an identity card. When changing his domicile, he must have his identity card endorsed before leaving. Lastly, there were occupations which could not be exercised in Indo-China by foreigners ; those included information agents, private police agents, immigration and emigration agents, owners of employment bureaux, hotelkeepers or innkeepers (except in the case of foreigners who had resided five years in the colony). The regulations applied by the general Government of Indo-China compelled the natives of Indo-China who left the territory to obtain a passport or identity papers. Those documents could only be issued after an enquiry into the morals of the applicants ; this should constitute a sufficient guarantee against the traffic.

1 Document C.849.M.393.1932.IV, page 91. — 23 — The sections for investigating and controlling immigration at Saigon and Haiphong (the two great ports of the country) enquired into all the clandestine traffic in women and children. In the case of suspected passengers, enquiries were made ; the boarding officer must inform the department of morals of the departure and arrival of registered prostitutes. No measure of deportation had been taken against a foreigner engaging in prostitution, as no such case had arisen in Indo-China.

M. Me y e r (Netherlands) gave a short account of the measures taken against the traffic in children in the Netherlands Indies. Every week, ships coming from China transported a greater or smaller number of minor emigrants travelling alone. As a rule, they were children who could be used for immoral sexual purposes and in many cases had been sold for labour. Very often, however, those facts could not be proved. The pretext given by the person in charge of the child or by the immigrant was that the only object was to assist indigent Chinese children. Naturally, traffic of that kind should be opposed. It would be wrong to refuse admission to such children and to send them back, since they would again fall into the hands of the traffickers. The following arrangement had been made after the position had been considered by the departments concerned. On arrival, the immigrant or the person accompanying him gave various reasons for entering the Netherlands Indies. Those reasons were carefully examined by the immigration officer (who was the secretary of the local Immigration Committee). An immigrant might, for instance, pretend that she was married to the person accompanying her, or that her father in China was dead and that she was on her way to her mother in the Netherlands Indies. Various other pretexts might be given. If a young immigrant arrived accompanied by his parents or person responsible for him, and if an employer had informed the secretary of the Immigration Committee of his arrival and communicated the correspondence about the case, the immigration officer might admit the immigrant into the Netherlands Indies, provided he was convinced that the persons were reliable. If it appeared, during the examination, that the immigrant was not accompanied by his parents or the persons responsible for him, or if his arrival had not been announced by an employer in the Netherlands Indies, he was refused admission, but other measures were taken. In this respect, there were two possibilities : (a) return to the country of origin, (b) in cases in which the im m igrant was refused admission in a technical sense, though he might stay in the country under certain restrictions, a warrant of deportation from the Netherlands Indies was issued, though its effect was suspended. In the first case, the immigrant was only sent back to his country of origin if it were certain that care would be taken of him in that country, either in his home or in some institution. In the second case, the immigrant entered the Netherlands Indies under restrictions. If the immigration officer had any doubt regarding the issue of a permit of admission, he communicated with the Government Bureau for Combating Traffic in Women. In practice, the procedure was as follows : The secretary of the Immigration Committee informed the Government Bureau that a young immigrant had arrived and that admission had been refused. In his letter to the Bureau, he mentioned the purpose of the journey to the Netherlands Indies, together with the name and address of the person mentioned by the immigrant or the person accompanying him as his future guardian. In view of the information furnished by the Immigration Committee, the Government Bureau requested information from the authority at the guardian’s place of residence (that was to say, the future residence of the immigrant) on the following points : (1) The reliability of the declarations made to the immigration officer ; (2) The reputation, means and relations of the guardian ; (3) Whether traffic or exploitation of children was to be feared.

The answers received by the Government Bureau were communicated to the Immigration Department, which checked these statements, if necessary, with the assistance of the immigrant or the person accompanying him. There were two possibilities : (a) If it appeared that there was no actual close relationship between the future guardian and the immigrant, and if it were not sufficiently certain that no danger was to be feared, but if the guardian had a good reputation, no certificate of admission or residence was granted, but a warrant of deportation was issued with a suspensive condition. This condition was worded as follows : " The execution of the warrant of deportation from the Netherlands Indies is suspended as long as the Government Bureau (which includes the head of the system of correction and rescue work) considers necessary”. The immigrant was then handed over to the future guardian to be taken care of until further notice. (b) If, however, the information regarding the future guardian was unfavourable, the immigrant was either provided with another guardian or placed in an institute willing to take care of young immigrants. The subsequent procedure was as follows : The local authority concerned — that was to say, in the capitals of the Netherlands Indies, the Chief Commissioner of Police, and elsewhere, the civil service — supervised the care of the immigrant. In some places, the control was in the hands of the private association “ Pro Juventute ”. The authority in question notified the guardian that he could not transfer the child to other persons without the authorisation of the Government Bureau. The local authority kept the Bureau informed regarding the treatment which the ^migrant received from the guardian. — 24 — The position of the immigrant was re-examined at the age of seventeen years. It was then ascertained whether he would be capable of earning his living immediately or in the near future. If so, the warrant of deportation was cancelled and a card of admission was granted to the immigrant. If not, the supervision was continued on the same lines until the immigrant could provide for himself, but not later than the age of twenty-one. It sometimes happened that an immigrant could earn his living before the age of seventeen. In that case, the Government bureau considered whether the supervision might cease and an admission permit be granted. As regards girls, the supervision ceased if they married a person of good repute, or if they received such treatment in the family of the guardian that they might be considered as a member of the family. It happened in rare cases that an immigrant ran away from the guardian and thus escaped from supervision ; in that case, efforts were made to find him. The matter was brought to the notice of the immigration officer. It also happened, though rarely, that the behaviour of the immigrant was such that his residence in the Netherlands Indies became undesirable. The warrant of deportation was then executed and the immigrant left the Netherlands Indies. The greatest precautions were taken in respect of his journey. All cases under the control of the Government Bureau were registered. Moreover, the Bureau possessed photographs of all immigrants. On January ist, 1937, there were 95 girls and 242 boys, making a total of 337, under the supervision of the Government Bureau. To sum up : (1) Regulations had been established by which young immigrants were not refused admission without explanation if the purpose of their journey was doubtful. On the contrary, they could enter the country under certain conditions and were protected against danger. (2) They were then supervised by the Government Bureau. (3) This supervision ceased at the age of seventeen, provided this involved no danger to the immigrant. (4) Naturally, the supervision ceased definitely when the immigrant reached his majority — that was to say, at the age of twenty- one years.

Professor Co r r e ia (Portuguese India) said that migration was of special interest to Portuguese India, since there were many Goanese emigrants living in British India. Moreover, many inhabitants of Portuguese India emigrated to Portuguese or British Africa. Formerly, the emigrants were less numerous, as economic conditions were less severe and communications were more difficult. There were no less than 80,000 Portuguese subjects in British India, most of whom resided in Bombay. That city was the most important place of disembarkation for Portuguese emigrants going to British India. The Portuguese Government had, for that reason, taken the most energetic measures of protection and social prevention, in co-operation with the British authorities, with a view to avoiding cases of seduction (since there could be no question of traffic in India) on the part of sottieneurs and others. Most of the women leading an irregular life were Hindous and belonged to the caste of Bayaderes or bom prostitutes. This was due to tradition or rather to a semi-religious commandment which went back to the most distant times, since it was 10,000 or 12,000 years old. These women, who were professional prostitutes by heredity and as a religious duty, frequently went to Bombay and other ports on the west coast of British India. They were not victims of the traffic and they carried on their clandestine trade voluntarily, while the members of their family accompanying them helped them to obtain men capable of providing for them in a generous manner. There could be no doubt that this was a disgrace, but it was impossible to ignore tradition. All that could be done was to carry on persuasive propaganda, in order to cause these women to abandon this conception of life. The general Government of Portuguese India, apart from the material assistance which it granted from the emigration fund, had succeeded, with the help of the Goanese community of Bombay, in leading many Goanese women to abandon an immoral life, some of whom were already clandestine prostitutes or were in danger of falling into prostitution. In conclusion, Professor Correia paid a tribute to the welfare work in connection with Indo- Portuguese emigrants in the Empire of British India, which represented one of the finest social works of the general Government of Portuguese India.

M. S a m pa io (Macao) explained that the port of Macao was not served by long-distance vessels. It was connected by river with the neighbouring towns of Hong-Kong and Canton and by road with the town of Seeaki in the Chinese province of Kwantung. The arrivals in and departures from Macao were almost exclusively due to commercial reasons. Nevertheless, in October 1935, sixteen Russian women had arrived in the colony as dancing girls and were subsequently deported on the ground that they were suspected of engaging in clandestine prostitution. The same step had been taken against two persons of the same nationality who were under grave suspicion. Those were, however, isolated cases, so that it might be said that the problem of migration proper did not exist at Macao. The few Russians who now resided at Macao had regular habits and had not attracted the attention of the authorities. — 25

FOURTH MEETING.

Held on Friday, February $th, 1937, at 9 a.m.

President : Jonkheer B a u d .

16. Migration, in so far as this Question affects the Protection of Migrants against Traffic in Women and Children (Item II of the Agenda) : General Discussion (continuation).

P rofessor Co r r e ia (Portuguese India) w ish ed to add an observation to his remarks of the previous day. He had said on several occasions that there was no international traffic in women and children in India, and had made that statement in order to reply to a question by Mrs. Mukerjee. In addition, he was glad to inform the conference of the efforts made by certain philanthropic and voluntary associations recently established by the Hindus for the moral rehabilitation of Hindu women.

Mr. N orth (Hong-Kong) desired to add some information to his previous statement. All immigrants, other than Chinese, arriving in Hong-Kong had to produce passports, and, if they wished to remain in the territory, to register with the police. In that way the authorities could keep a watch over them, especially in the case of cabaret dancers, etc., who were believed to be in danger of falling into prostitution. He had perhaps not fully explained the control over Asiatic emigrants. Tickets for the voyage could only be sold through an authorised broker. It was also provided that the women must appear before the Secretary for Chinese Affairs provided with photographs in duplicate. Their names were placed on a numbered list. The names and numbers of the passengers were written on the photographs. The women passengers who passed the inspection had their photographs stamped by the Secretary for Chinese Affairs, while the duplicate of the photograph was kept in his office. When the women arrived in port, they were visited by the immigration officer, who saw that they were all provided with photographs. The duplicate photographs kept in the office were open to inspection by any persons who had lost their relatives and, in this way, missing women were sometimes traced. Mr. North suggested that the Chinese delegation might consider the introduction of a similar system for immigrants from ports of China, Swatow, Amoy and Hoihan. He did not suggest that the system should be adopted between Hong-Kong and Macao, as it was unnecessary.

Mr. J o r d a n (Straits Settlements and Federated Malay States) said that the Conference already possessed information regarding the control of immigrants from his statement on Item I of the agenda1 and in the printed documents or the report of the Commission of Enquiry. The control over non-Asiatic immigrants was substantially the same as in Hong-Kong. It would be realised that it was impossible to examine in detail every woman and child arriving in a port such as Singapore. In 1936, over 200,000 females had arrived there, while, in 1935, the number of vessels over 75 tons entering Singapore was 13,935 or 37 per day. Mr. Jordan would like, therefore, to treat this item on somewhat different lines and to consider the effect of changes in social and economic conditions on migration and indirectly on the traffic in women and girls. He would also consider to what extent Governments could influence migration in such a way that the conditions which were favourable to the traffic might be changed and replaced by conditions which were unfavourable to the traffickers. He would mention, in particular, the change which had taken place in the sex ratio in the immigrants into Malaya. The figures would also show how far success had been achieved in obtaining a settled population instead of one which was constantly ebbing and flowing. Experience of new countries like Malaya might be of interest to the Conference and point the way to a solution of some of the problems. As it was impossible to review every factor affecting migration, he would merely deal with the broad tendencies. The main cause for the immigration of Chinese into Malaya was that the country had been regarded as an El Dorado. In the early days, the Chinese came to Malaya to make their fortunes and then to return to their own country. But some of them had settled in Malaya and married women of the country, and these families formed the nucleus of the community of the Malayan Chinese. They usually sent to China for wives for th eir sons and grandsons, and their descendants were in all respects similar to China-born Chinese, though their customs differed in many respects. Many of them were unable to speak Chinese but only Malay and, in some cases, English. Under the old Chinese Empire, the emigration of women from China was definitely discouraged and in some cases even forbidden. But great changes had taken place since the foundation of the Chinese Republic. Perhaps no country in the world had made such great progress in a quarter

1 See page 11. — 26 — of a century. In the forefront of that progress he would mention education and the emancipation of women. These social changes had exercised great influence on conditions in Malaya. Before 1930, no restriction had been placed on the immigration of Chinese into Malaya. That freedom, combined with good administration and equal justice for all, made Malaya popular with the Chinese. Their many good qualities made them welcome in the country. But their arrival in large numbers — at times between 60,000 and 70,000 a month — created certain social problems. The Chinese immigrant had normally been an unattached male, either a bachelor or a married man who had left his wife in China. Later, he returned to marry or to bring back his wife and family, but since the bulk of the immigrants consisted of unattached males, the sex ratio was bad and there was an insistent demand for prostitutes. The Chinese had, until recent years, been largely polygamists. The new civil code of China only recognised monogamy, but some time must elapse before such a radical change could be put into practice. The Chinese Government was to be congratulated on this step and Mr. Jordan would also pay a tribute to the organisations of Chinese women who had worked to that end. This step might have more far-reaching consequences than could be visualised to-day. To quote figures, he might state that, in the census year of 1911, the sex ratio for Chinese in the Straits Settlements was 358 females per 1,000 males and, in the Federated Malay States, 188. Naturally, the ratio was better in the towns and worse in less settled parts of the country. In the same year, the proportion of Chinese bom in Malaya of the total Chinese population was 23% for the Straits Settlements and 8 % for the Federated Malay States. Between the 1911 and 1921 censuses, no attempt was made to alter the sex ratio. It was felt that the ratio would be corrected by the gradual opening-up of the country, improvement in social conditions, better health conditions, etc. Those conditions had indeed had an effect, and, in 1921, the sex ratio for Chinese was 479 per thousand in the Straits Settlements and 351 per thousand in the Federated Malay States, while the percentage of Chinese bom in Malaya was 29 and 17 respectively. Those figures had been to some extent affected by the catastrophic change in economic conditions, generally known as the slump. It had had two effects on migration : (1) it had caused the return to China of immigrant labour and (2) it had brought about Government restriction of the number of immigrants admitted into the country to such a figure that the supply of immigrant labour was approximately equal to the demand. The immigrants who returned to China, whether at their own cost, or at the cost of the Government, consisted mostly of unattached men and only 20% were women. The restriction on incoming Chinese imposed in 1930 only referred to males, and no restrictions were imposed on females. At the time when Chinese were returning to their country in such large numbers, the monthly quota of immigrants had been reduced to 1,000. It had been raised gradually between March 1935 and August 1935 to 4,000. It was at present 5,000. There were no census figures for the whole country later than 1931, but a census of the municipality of Singapore had been taken in 1936 and was typical of the conditions in the rest of the country. It showed a sex ratio of 698 women per 1,000 men, while the proportion of locally- born Chinese was 41%. These figures showed how economic conditions could affect migration, especially if the authorities deliberately set out to influence the sex ratio. Mr. Jordan thought it would be admitted that to change the sex ratio from 358 in 1911 to 698 in 1936 must have indirectly affected the traffic in women and children. It might be of interest to the Conference to have information regarding women from Hainan. In 1917, the first Hainanese woman had come to Malaya and her arrival had created consternation in her community, so much so that she had had to return. But in about 1923, Hainanese women had started to enter the country fairly freely, so that, in 1931, there had been no fewer than 12,836. The effect on the Hainanese community had been most marked. As regards Indian women, the position was not so satisfactory. The Labour Department, which was charged with the supervision of all Indian labour, insisted on a certain proportion of women amongst immigrant Indian labour and had succeeded in raising that proportion from time to time. The sex ratio of all Indians in British Malaya was 406 in 1921 and 482 in 1931. The Indians in Malaya, unlike the Chinese, were constantly on the move, and the average stay of Indian labourers was less than three years at one time. Mr. Jordan was compelled to show the darker side of the picture in regard to the Indian sex ratio, as illustrated by the figures for the Singapore municipality. The figures were :

1 9 1 1 ...... 215 1921...... 188 1931...... 186 1 9 3 6 ...... 244

In one respect, these figures supported his main contention ; for the Indian population in Singapore was mainly mercantile, and the Labour Department could not take measures to improve its sex ratio. These Singapore figures were influenced by the fact that a large section of the Indian mercantile community in Singapore consisted of Chettiars, thebanking andmoney lending caste. It had been a rule with them, as with the Hainanese, not to bring their women to Malaya, and they had been patrons of prostitutes of other races. Recently, however, a leading member — 27 — of the community had brought his wife to Malaya. It was to be hoped that that example would be followed by other Chettiars, and that the consequences would be as marked and beneficial as in the case of the Hainanese community. Mr. Jordan believed that social changes in great countries like China and India must have a great influence on the traffic, especially changes which came under the heading of educational progress and the emancipation of women. Since he had first gone to Malaya, twenty-four years previously, those social changes had been astonishing. He was confident that further advance on those lines would reduce the traffic in women and children. He hoped that his remarks had convinced the Conference that economic and social changes had affected migration, that they could be used by the authorities to influence migration along certain definite lines and that, if they were so used, they would indirectly reduce the traffic in women and children.

M. S u n g (China) stated that the Chinese Government had taken measures to protect emigrants against traffic in women and children. Chinese emigrants were required to apply for passports at the embarkation ports before leaving. Prior to the issue of the passport, the applicant must supply all information regarding the purpose of the journey, and his declarations must be vouched for by a person capable of accepting financial responsibility. In addition, applicants were required to answer questions to the satisfaction of the officers in charge. No passports were issued to applicants who failed to produce a qualified guarantor or to supply satisfactory documents. That general practice was, however, limited to applicants bound for foreign ports where the examination of passports was required upon embarkation. The traffic in women and children between south and east China and the South Seas passed through a few important centres. The traffickers either embarked first at Amoy for Hong-Kong and from Hong-Kong to the South Seas or proceeded from inland places first to Canton, Swatow or Macao and then to Hong-Kong, and from Hong-Kong to the South Seas. Hong-Kong was therefore the most important distributing centre in the south of China. That was due to the fact reported in the Regional Conference held in Hong-Kong on July 2nd, 1935, that, with few exceptions, only Hong-Kong had direct steamship communication with places overseas. It was therefore clear that the main work of stopping overseas traffic must fall upon the Hong-Kong authorities. In Hong-Kong, however, there had been for some years a careful examination of every female emigrant going to Singapore and beyond, and all doubtful cases were held up for enquiries. In order to discover cases of traffic in Amoy, detectives were employed by the Police Department of the municipality, in addition to the enforcement of the usual practice of requiring applications for passports. In order to substantiate this statement, M. Sung submitted a table of statistics of cases of traffic discovered in the year 1936, showing a total of 65 children and 121 women, which proved that the Chinese Government had endeavoured to play its part in the protection of Chinese emigrants against the traffic in women and children.

M. A k ag h i (Japan) said the question of migration was not a serious one for Japan, as that country did not receive any considerable number of emigrants. The question, therefore, concerned rather persons leaving Japan for other countries. Although the Japanese Government had stated in its reply to the questionnaire (see Annex 4, page 93) that no new legislation had been introduced since 1921, the Foreign Office ordinance relating to the issue of passports had been revised in 1935, as a result of which it had become more difficult for women unaccompanied by their families to obtain passports ; thus, the control over migration for immoral purposes was becoming more effective. At the same time, instructions were given to the authorities concerned relating to the application of the new rule, a passage of which read as follows :

“ In case the applicants, regardless of whether they are emigrants or not, are suspected in any way of becoming prostitutes or carrying on traffic in prostitution, a thorough investigation is made into their personal status and the reports on the subject are sent to the Foreign Office, together with all other documents.”

Investigations into personal status could be made with great facility and accuracy in Japan on account of the census registration in the municipal offices and the regularity with which police investigations were carried out. It had long been the policy of the Foreign Office, in co-operation with the consuls at various places, to check the issue of passports to doubtful applicants. In 1936, nine applications had been rejected, three of which were intended for Hong-Kong, four for India, °ne for the Philippines and one for the Netherlands Indies. There were also a number of cases in which women of Japanese nationality were sent back to Japan on account of engaging in prostitution in such places as Shanghai, Hong-Kong and Singapore. That step was taken by the efforts of the Japanese consuls or the local authorities, or by co-operation between the two. On the other hand, a number of foreign women had been deported from Japan on account of loose morals, the figures being tw o from Japan proper and eight from Taiwan (Formosa) since 1931. In general, the laws, regulations and rules on the subject had been applied satisfactorily and there was no evidence that traffickers were evading them. The following practical measures had proved to be very effective. At various seaports, local authorities strictly supervised any offences — 28 — of the kind mentioned through officials who were sometimes on duty on board ships plying between Japan and China or Taiwan, or between those territories and China. Those officials, on entering the service, were instructed to pay special attention to traffic in women and children, the prevention of which was considered a matter of primary importance to the police authorities. These officials patrolled the port area and inspected every incoming and outgoing ship in respect of smuggling. They were despatched to various places whenever necessary, either in uniform or in plain clothes. In addition, there were generally officers at every important railway station and, in case of need, they travelled in the trains. Those measures were more generally taken outside Japan proper and more strictly enforced at frontiers both in respect of incoming and outgoing passengers, with a view to securing an effective guard against various offences. They were naturally not directed solely against traffic in women and children, but they rendered it extremely difficult to carry out such traffic with success.

Dr. G r o e n e v e l d t (Netherlands) stated that immigration in the Netherlands Indies was regulated by the Royal Decree on the Admission and Residence of Netherlands Nationals and Aliens in the Netherlands Indies (Government Gazette, 1916, No. 47), subsequently amended at various times. Those regulations referred to all ways and means of entering the country. As far as the traffic in women and children and prostitution were concerned, the immigration procedure contained the following provisions. x. Section 1, Paragraph 3. — Unless special conditions established for the following cases have been fulfilled, such persons as are apparently lunatics, idiots or suffering from contagious diseases and, further, such as are in such physical condition that they may be expected to become a charge upon the community are not allowed to disembark. 2. Section 4, Paragraph 2. — Besides the individuals mentioned in the preceding section, the admission permit, to be exchanged immediately for the landing-permit, issued at the moment of disembarkation is also refused to all those who : Are professional prostitutes or procurers ; Have been convicted in a foreign country with which the Netherlands Indies has concluded a treaty of extradition for an extraditable crime ; Have been banished from the Netherlands Indies ; Are apparently not able to provide properly for themselves and their families ; Are considered to be a danger to the public order and peace ; Being aliens, are not in the lawful possession of either a valid passport issued on behalf of their Governments for the voyage to the Netherlands Indies and bearing a Netherlands visa, or who, not being able to procure a passport, are not in possession of some other document which has been considered satisfactory by some Netherlands diplomatic or consular official and which shows clearly who the holder is and from whence he comes. 3. Section 6, Paragraph 5. — The periodical extension — that is, after the first two years, the third and the fourth year — is refused in the cases mentioned under section 4, previously summarised. 4. Section 9, Paragraph 1. — Whenever a person coming under paragraph 1 of section 1 is found not to be in lawful possession of a valid admission permit, he is supplied with an admission permit, unless he belongs to the categories mentioned in section 4 to whom no admission permit may be issued. Should the person concerned have transgressed the Immigration Decree, a fee of 250 guilders will be charged. 5. Section 10, Paragraph 1. — Should a person who has been admitted under sections 4, etc., and 9 be considered to be dangerous for the public order and peace, should such a person be found guilty of a crime, or should it become evident that such a person has obtained his admittance through fraudulent means — for instance, with respect to his name or quality — then the Governor- General can cancel the admission permit and issue a deportation order. 6. Section 12, Paragraphs 1 and 2. — The residence permit may be refused : In the interest of public peace and order ; In case the applicant is not deemed to be able to provide properly for his own or his family’s wants ; In case he should be convicted for crime after his admission. Whenever the issue of a residence permit is refused, the reasons for this refusal must be given in writing ; such a refusal is accompanied by a deportation order.

* * *

Consequently, apart from the incidental cases of withdrawal of an admission permit when such admittance had been obtained through fraudulent means, five marked instances of supervision were distinguishable in th e process of immigration into the Netherlands Indies — namely : The first at the moment of arrival ; on board as well as before the Secretary of the Immigration Committee ; The second, third and fourth at the moments of extension of the admission permit ; The fifth at the moment of application for a residence permit — that was to say, after a continued stay of ten years in the country. — 29 — In each of those instances, an immigrant who, for any of the reasons mentioned above, proved to be or to have become an undesirable could be deported from the Netherlands Indies. A system of signalling all criminals, to a certain extent including finger-prints, was run by the Head Office of the Immigration Service. Individual cases had occurred where as many as seventy denunciations had been distributed by the head of the public morals, education and public relief section of the Department of Justice amongst the immigration committees in the Netherlands Indies and the authorities abroad. M. Meyer had already given the Conference a circumstantial account of the measures of protection of young immigrants,1 to which M. Groeneveldt had nothing to add. He desired only to give the Conference some further information with regard to the treatment of adults from the point of view of the traffic in women and children and prostitution. In order to prevent women of doubtful character from entering the country on the pretext of being in lawful possession of valid immigration papers, in many cases forged abroad, the principle was adopted that, in each such case, the woman was brought before the Secretary of the Immigration Committee, who investigated the matter thoroughly. That method had existed since May 1921. Female Chinese immigrants had to produce official documents to prove that they were the lawful wife of the man who claimed to be the husband and that they were therefore exempt from payment for the landing-permit. In most of those instances, the advice of the Head of the Chinese Section of East-Asiatic Affairs was required. If the so-called husband was suspected of being a trafficker, the police and the head of the bureau of public morals, education and public relief were notified at once. M. Meyer had already gone into the question of theatre companies. It would be sufficient, therefore, to give the following additional information on the question. In the Netherlands Indies, there were no small dancing-halls, cabarets, etc., the inmates of which were prostitutes. Consequently, the basis was lacking for that sort of traffic in women and children. Apart from an occasional circus, practically the only kind of theatrical companies that visited the Netherlands Indies were the Chinese “ wayang As those companies were always more or less suspected of having with them a number of women actually living on prostitution, their entrance was only allowed under the following conditions. Before entering the Netherlands Indies, the manager of the company or his agent must send in a full statement of the names of the members of the troupe and the original contracts for his performances. Upon those documents, the advice was required of the Bureau of East-Asiatic Affairs, or, if necessary, of the head of the public morals, education and public relief section of the Department of Justice. Should any disproportion exist between the number of women, as compared with the number of men, connected with the company, admittance was refused. Persons previously notified or deported were not allowed to enter the country. If no objections were raised by any of the Government authorities, the members of the company were, upon their arrival, provided with provisional admission permits, valid for not longer than six months. Notification of their arrival with full details was given to the head of the public morals, education and public relief section of the Department of Justice and to the local heads of the civil service, who, through the police, kept a close and constant watch on the behaviour of each member of the company. Their departure was strictly checked by the landing officers at the last port of call in the Netherlands Indies. M. Groeneveldt presumed that the previous explanations had given the Conference a concise idea of the measures taken in the Netherlands Indies for the prevention of traffic in women and children and prostitution. There was a further question of local, and therefore perhaps of minor, importance which he would not like to leave unmentioned. W ith regard to the difficulties encountered at Singapore in connection with passenger transhipping to the small islands of the Rhio Archipelago, he was able to declare that that question had the full attention of the Government of the Netherlands Indies, °f the Immigration Service in particular. Measures dealing with the matter thoroughly could be expected shortly, and it was even probable that, within a few days, he would be in a position to give the delegate of the Straits Settlements and the Federated Malay States full satisfaction in that connection.

Prince Sa k o l V a r a v a r n (Siam) congratulated the delegate for Malaya on his valuable suggestion regarding the economic and social aspects of emigration. There was a striking parallel between the history of that question in Siam and in Malaya. W hat Mr. Jordan had said regarding the sex ratio in Malaya was equally true in Siam. Some years previously, the sex ratio between men and women had been three to one ; it had somewhat improved in recent times and was now three to two in view of the intensified immigration of Chinese women into Siam. Reference had been made to the legalisation of monogamy in China. It had also been legalised jn Siam and marriages were registered. It must not, however, be thought that, in countries like Siam and China, such legalisation could be put into effect without difficulty. From the point °f view of traffic and also from the economic point of view, its immediate effects might be pore unfavourable than was expected, and family life, which had hitherto been sound and healthy m Siam, might suffer certain inherent defects of the kind experienced in Europe. From the economic point of view, the position of women would certainly be improved, but the state of affairs would not be perfect, since a certain time would be required for men to realise that women henceforward possessed certain property and other rights. In any case, many irregularities would be committed and a position would arise in Siam and in China which had hitherto been unknown — namely, that men would have mistresses, that women would be kept, etc.

1 366 page 23. — 30 As a result of the economic depression and in order to combat unemployment, immigration control had been instituted in Siam ; it was purely qualitative, since no quotas were fixed for the immigration of nationals of each country. Restrictions in numbers could, however, be applied by the administration if the need arose. The next census would take place in Siam in May, so that the figures at present available were somewhat out of date. It was nevertheless certain that the ratio between Chinese women and men and the general question of the Chinese population were the same in Siam as in Malaya. The Chinese population in Siam had increased four to five times since the Chinese revolution of 1911. The problem of traffic at Hainan was considered in the reply given by the Siamese Government to the questionnaire of the League of Nations (see Annex 4, page 100). As to the economic side of the problem, it would be interesting to make a study of the short- and long-run effect of the depression. At first sight, poverty would seem to have a contradictory effect, for, while it might encourage the traffic in its first stage, it decreased the demand for women and depressed the market of vice. Referring to the question of migration in Siam, Prince Sakol Varavarn said the Siamese delegation felt a certain amount of envy that some delegates were able to state that their territories were altogether free from the curse of this traffic. Siam was not in such a happy position, for there was evidence of the existence of traffic in the country. There was, however, reason to believe that the incoming traffic, which related especially to Chinese women, had decreased in recent years. The number of Chinese prostitutes was reduced by half on account of the stricter control over immigration which had been used as a preventive against unemployment during the depression. The economic depression itself had also been a contributory factor in this decrease. A casual glance at the figures contained in the answer to the League questionnaire would confirm that statement. They even revealed a slight upward trend. The Siamese delegate had therefore come to the conference with high hopes that co-ordination and co-operation would result, not only in the combating of this international evil, but in strengthening efforts for developing international good order and morals. The outgoing traffic was comparatively unimportant. In that connection, Prince Sakol Varavarn mentioned that, shortly before leaving for Bandoeng, he had noticed an advertisement in th e Bangkok Times for Siamese dancing partners for Singapore. Without desiring to make any criticism, he would point out that certain women might go abroad to carry on an occupation of that kind without being victims of traffickers. Hitherto, Siam had not considered it worth while to control emigration, as the Siamese population was small in comparison with the size of the country and there were no large Siamese colonies abroad. Siam had signed agreements with British Malaya and French Indo-China providing for identity cards as a substitute for passports. The Siamese delegation noted the admirable provisions for the welfare of victimised women and children in some of the countries represented at the Conference. It had heard of those provisions with genuine admiration, in particular as regards the country which offered hospitality to the Conference. Siam could not make the same boast. Siamese police had occasionally entrusted the care of girls to reliable private families. There was, unfortunately, no Po Leung Kuk in Siam. It would appear that the United Kingdom delegate was in favour of public guardianship and it was to be hoped that he would not be disappointed. In conclusion, the Siamese delegate said that the Chinese boys in theatrical troupes travelling from town to town had caused certain difficulties to the authorities.

Mrs. M u k e r j e e (India) pointed out that the Commission of Enquiry into Traffic in Women and Children in the E ast1 had observed in its report that the general policy of the Government of India towards the import of foreign women for immoral purposes was to make it difficult for foreign prostitutes and souteneurs to enter India. That was done by scrupulous investigation as to the purpose of the intended voyage and by deporting foreigners found to be undesirable. The passport rules and the laws bearing on incoming and outgoing traffic had been summarised by the Commission in its report, and the reports from the Provincial Governments indicated that there had been no change since the Government of India had laid down that visas for India were only granted to young women who could satisfy the authorities that they were travelling to India for a bona-fide purpose. There was practically no outgoing traffic in India. The Bombay Government had suggested that, as in the case of theatrical or circus artists, whether men or women, British consuls abroad should make previous reference to the Governmen of India before granting visas for India in respect of all women of foreign nationality regarding whom any doubt existed, in order to prevent the entry of foreign prostitutes. The Commission of Enquiry, in its report, discussed the extent and reason of the incoming traffic of women into India and commented favourably on the steps taken by the police to rescu immigrant victims of traffic in women and children and the success achieved by them in that wor . The Government of India considered that, on the whole, the existing position as regards po ic action in that direction was satisfactory.

1 D ocum ent C.849.M.393.1932.IV, page 330. — i t — As had been pointed out in the meeting of the Advisory Commission in 1934, the problem of immigrant girls scarcely arose in India, since international traffic was practically non-existent in that country. Owing to the closing of brothels and other reasons, the entry of foreign prostitutes into India had decreased during recent years. There was some migration from Goa, as described in the report of the Commission of Enquiry, but she had no information that any special measures were taken by the Bombay authorities, as in the case of foreign prostitutes. Those cases were probably dealt with as internal migration, and measures were taken as in all such cases. The Commission’s report described how the authorities in Bombay and private organisations were trying to cope with the situation.

M. P e r e ir a (Macao) pointed out that the problem of migration as related to the object of the Conference arose very exceptionally in Macao. It was, however, necessary to speak of it on account of the imaginary case submitted to the present Conference by the Hong-Kong Conference.1 The imaginary case referred to a Chinese victim of the traffic who was not authorised to disembark at Singapore by the Immigration Department and who had been repatriated to Macao at the expense of the Macao authorities. It was asked what the position of such a girl would be and how the same trafficker could be prevented from sending her elsewhere under another name. M. Pereira would endeavour to give a reply to that question, although it had been pointed out that the case had no relation with actual facts. Without taking account of the fact mentioned by Mr. Jordan that, in the eventuality considered by the Hong-Kong Conference, the Chinese girl would not be refused authorisation to disembark at Singapore, he would point out that, on arrival at Macao in the circumstances mentioned, she would be taken care of by the “ Casa de Benificência ”, since she would be presumed to be abandoned and in moral danger. The " Casa de Benificência ”, which was protected and subsidised by the Government, worked under the direction of Canossa Sisters and co-operated closely with the authorities in protecting abandoned girls whom it would be dangerous to leave to their fate. In that home, the girls received a Christian education and were at the same time trained in some occupation which would enable them, on leaving the home, to earn their living honestly and legally. After their discharge from the Institute, the girls were for some time kept under discreet supervision by agents of the mission specially entrusted with the task, in order that they might not fall back into prostitution. A study of the position therefore showed that the traffickers would find it useless to endeavour to regain their influence over their former victims. M. Pereira added that the Government of Macao, after taking note of the suggestions made by the delegation of that colony at the Hong-Kong Regional Conference, had prepared plans for a larger building intended exclusively for the rehabilitation of abandoned girls ; construction would soon begin in the Tamagnini Barbosa district. That house would also be directed by Canossa Sisters and by missions subsidised by the State.

Miss S h e p h a r d (Association for Moral and Social Hygiene, India) said that she was sure the attention of the Government of India would be drawn to the very interesting statement made by the delegate of the Straits Settlements. She knew that the Government of India took the question of regulating the sex ratio into close consideration in connection with migration, whether immigration or emigration. She also knew that the Government, both centrally, and in the Madras Presidency, was satisfied with the improving sex ratio conditions for emigrants to Malaya, and that it had exempted them from the conditions attached to the sex ratio clauses operative under the immigration laws in India. Miss Shephard had also heard that more care was now being taken in recruiting a due proportion of female and male labourers for tea-gardens in Siam, Burma and Ceylon, as well as for the jute-mills in various places. She thought this statement would show that the Government of India, the provincial governments and the private mercantile organisations were aware of the great importance of regulating the sex ratio in order to reduce the traffic in women and children.

M. Ch e n (China), in reply to a question by Mr. North, said that, when application was made for a passport, the Chinese authorities required not two photographs, as was the case elsewhere, but three ; one was attached to the passport, one was kept by the immigration office of the port, and the third was sent to the Ministry for Foreign Affairs. He had been struck by certain facts mentioned by the delegate of the Straits Settlements. M. Chen was glad of the improvement in the sex ratio among Chinese in Malaya. The doubling °f the number of women as compared with the number of men during the last twenty-five years was due to the progress made by education in China and to the emancipation of women. The Chinese Government had not only abolished polygamy but had also established complete equality between the sexes. As regarded education, three years previously, 11 million children had attended the Chinese schools, while the figure had risen to 16 millions at the end of 1936. The improvement H1 Public education and the emancipation of women had helped gradually to reduce the traffic m Chinese women and children. As regarded the kidnapping of children, a Chinese university

1 Document Conf. /C.T.F.E./ O rient 3, pages 8 a n d 9 . _ 32 — woman, after studying the problem for three years, had noted that almost all the traffickers and their victims were illiterate. W ith the improvement of public education in China, it might well be hoped that those cases of kidnapping would be diminished. M. Chen also hoped that, in Malaya, instruction was given, not only to Chinese boys, but also to girls. The immigrants of Chinese nationality in the Straits Settlements belonged to two mai^ categories — namely, workmen and traders. At present, the workmen were still without education, but the Chinese Government was doing its best to instruct even adults, with the special object of reducing the possibility of traffic. It should not be forgotten that these working-classes had greatly contributed to the prosperity of Malaya. In conclusion, he would be grateful if the delegate of the Straits Settlements would give some information as to the frequency of cases of kidnapping of Chinese children in Malaya and the number of Chinese prostitutes in the Straits Settlements. M. Chen thanked Mr. Jordan for his remarks, and said he was in entire sympathy with his views.

Professor L a e r o u q u è r e (France) pointed out that, as regards Chinese immigrants, Indo- China was in a very special position. M. Chen had distinguished between Chinese immigrants who were workmen and those who were traders. It was mostly poor Chinese who went to certain countries looking for work there. In Indo-China, on the other hand, there was a sort of traditional immigration which had no relation to social or economic needs. Indo-China was a densely populated country which did not require to import labour. There was rather an emigration of Indo-Chinese to other countries. Chinese immigrants in Indo-China were to be found especially in the south of the country and occupied fairly high positions in business, in particular, in the rice-trade in Cochin-China ; they had plantations in Cambodia to which they endeavoured to bring their fellow countrymen, who competed with local labour. In reality, the problem of Chinese immigration was not the same in Indo-China as in the other Eastern countries. In Indo-China, it was rather a qualitative immigration, and the question of a quantitative disproportion between the sexes did not constitute a danger. As he had already explained, there was a control over the entry of foreigners into Indo-China, but no rule existed requiring a certain proportion between immigrants of the two sexes, and the Government of Indo-China did not intend, moreover, to upset, in Annam and Cochin-China, traditions which were centuries old and which permitted marriage with women of second or third rank. The Government of Indo-China was quite prepared to co-operate with the Chinese Government in respect of immigration, but it could not institute detailed measures providing for a sex quota or for restrictions in respect of the means of the immigrants. It proposed to continue to follow a liberal policy as regards immigration.

M. Meyer (Netherlands) thought the question raised by Mr. Jordan in respect of the inequality in the numbers of men and women in certain countries called for a thorough study which he would be glad to see undertaken by the present Conference.

Mr. N o r th (Hong-Kong) wished to dispel a misunderstanding which had arisen between himself and the Chinese delegate. His remarks regarding the method used by the Hong-Kong authorities to identify passengers related to those who had their papers in order. But there were countries which admitted deck-passengers without passports. Moreover, some vessels calling at Hong-Kong proceeded both to Malaya and to Chinese ports and it was possible for the deck- passengers to pretend, on leaving Hong-Kong, that they were proceeding to a certain Chinese port and subsequently to change their intention and disembark elsewhere. The same might happen in respect of passengers who, on leaving Swatow, said they were going to Hong-Kong while really intending to proceed to Singapore. In both cases, they were not examined either at Swatow or at Hong-Kong. This constituted a loophole which should be corrected. He thought there was an effective system of examining women and children at Swatow, but no identity documents were given to these migrants, so that, once they had left that port, it was not known whether they had been inspected or not.

Mr. J o r d a n (Straits Settlements and Federated Malay States) was glad that his rem arks had given rise to such an interesting discussion, and he thought that the suggestion which had been made during the meeting should be embodied in a draft resolution. He proposed to reply to some of the questions put to him. In the first place, M. Sung had said that Hong-Kong was a distributing centre for Chinese women and children going to the South Seas and that, consequently, the main control over such migrants should fall on the authorities of that town. In that connection, Mr. Jordan would point out that all who had studied the control which operated at Hong-Kong had declared themselves eminently satisfied. The further measure which he envisaged consisted of an examination of Chinese women and children to be carried out in China itself. He was aware of the difficulties which the introduction of such a measure would involve, but he hoped that, in view of the progress made by the Chinese Government in recent years, those difficulties could be overcome. It was true, as M. Chen had said, that the Chinese authorities did not issue a passport until they had carefully considered the application. But, according to the statement made by the Chinese delegate himself, it would appear that passports were only issued to emigrants who applied for them. Moreover, China only compelled her nationals to take out a passport if they were proceeding to countries where such a document was necessary in order to disembark. There were, however, some States, such as the Malay States, to which indigent Chinese em igrated, — 33 — which did not require them to submit passports in order not to involve them in excessive expenditure. In fact, passport control only related to cabin passengers, while the deck passengers were entirely exempt. If, instead of compelling her nationals to procure a passport only when they proceeded to countries which required it, China decreed that all her nationals going abroad should be in possession of such a document, an examination would always take place within the territory itself ; this would constitute a great advance. A sub-department of the Government Department of Education supervised the education of Chinese in Malaya. It granted subsidies to Chinese schools which had attained a certain educational level, in proportion to the number of pupils. Very large sums were thus paid out by Malaya to Chinese schools. It was very probable that the improvement in education was a good means of combating the traffic. Unfortunately, one of the last cases of traffic which had been brought to his notice related to an educated woman ; it was, moreover, on account of her knowledge of written Chinese that it had been possible to arrest the trafficker who had got this woman into his hands. . The question of the sex ratio among the immigrant Chinese population of the Netherlands Indies must be very different from the same question in Malaya. In the Netherlands Indies, there was already a large settled native population, and the Chinese population only represented 2 % of the total population. The opposite was the case in Malaya, where the bulk of the population consisted of immigrants. The position in Siam was more similar to that in Malaya. The Siamese delegate’s view was substantially the same as his own. In time, the recognition of monogamy would probably give good results, but a number of years would elapse before the practice was in conformity with the law. Mr. Jordan had also noticed the advertisement in the Bangkok Times, mentioned by the Siamese delegate, and he proposed to revert to the point later. Prince Sakol Varavarn had referred to the difficulties which the Siamese Government experienced in connection with young Chinese actors travelling in the country. This question was possibly not within the competence of the Conference, but it would nevertheless be useful to explain that these troupes of young actors came from the hinterland of Swatow and were known in Malaya as “ Tiochiu ” troupes. They made tours in Malaya, Siam, Sumatra and everywhere where Tiochiu communities were to be found. In 1931, partly on account of the slump, the living conditions of these young boys became very precarious, and the position bordered on a public scandal. The British authorities decided to prohibit the admission of Tiochiu troupes into Malaya. This measure had caused some excitement in the Tiochiu community, and, after long discussions, an agreement had been reached which would indirectly benefit Siam and would put an end to the ill-treatment of the young actors. The heads of the Tiochiu communities and the impresarios had agreed not to bring Tiochiu boy actors into Malaya but to recruit their boy actors locally. Definite engagement conditions had been prepared ; they had been accepted by the heads of the communities and the impresarios and by the Health Department of Malaya and approved by the High Court, and would put an end to the abuses.

M. Ch e n (China) did not see why the Chinese authorities should make passports compulsory for their nationals, if such documents were not demanded by the country of destination. Moreover, foreigners entering China under similar conditions had not to submit passports. If passports had to be issued to some five thousand emigrants who applied every day, the control would be greatly complicated. Lastly, it was not clear why the obligation to obtain passports should only apply to Chinese emigrants. He thought it better to give up the idea.

Mile. Y e n (China) said the Chinese delegation entirely agreed with the delegate of the Straits Settlements and Federated Malay States that the economic depression, the emancipation of Chinese women and the improvement in the education given to Chinese girls played an important part in the incidence of the traffic. Prostitution was to a great extent a question of finance. Turning to the question of immigration, she wished to submit to the Conference the following extracts from a report prepared by an international Committee representing seventeen women’s associations :

" It is estimated that there are about fifty Japanese and Korean brothels in the Settlement, the majority being located in the Hongkow district.” " According to the French report, there does not exist a single foreign brothel in the French Concession. There is evidence, however, of extensive casual prostitution.” “ There are approximately one thousand, non-Chinese prostitutes in the International Settlement and probably half of this number belong to the Slavonic race.” “ The French authorities estimate that there are 270 clandestine prostitutes operating in the French Concession. The majority of these women have parents but the latter are sometimes out of employment or receive inadequate salary to assure their existence.” • “ There are thirty-one licensed dance-halls in the International Settlement and eighteen registered and supervised dance-halls in the French Concession, but, according to some independent investigations, there are nearly 100 dance-halls operating in Shanghai.” — 34 — “ Estimates of the number of girls employed as taxi-dancers vary from 2,300 to 5,000. Of these 2,300 dancers, about 96 % are estimated to be Chinese, with Russians, Portuguese, Japanese, Koreans, Eurasian, Filipino and Jewish making up thé other 4%. This is significant with reference to the position of Russian women who were previously supposed to constitute the majority engaged in this occupation.” “ Two opinions taken as to the extent to which these women engage in prostitution give the following percentages : " According to one, foreign taxi-dancers engaging in prostitution, about 50%, Chinese 65% to 70%; “ According to the other one, at least 60 % of the dancers are either casual or regular prostitutes, no distinction being made between foreigners and Chinese.”

Miss Yen went on to explain that there were dancing-schools, massage establishments, Turkish baths and employment bureaux which placed women desiring to practise prostitution occasionally in contact with customers.

M. A k a g h i (Japan) thought M. Meyer’s proposal to study the sex ratio among Chinese communities abroad was very interesting. He did not consider, however, that such a study was within the competence of the present Conference and wished to reserve his opinion on the subject.

The P r e s id e n t drew the attention of the Conference to the fact that all the suggestions of the Hong-Kong Regional Conference coming under item II of the agenda had not yet been examined. In particular, there was the case of girls recruited by traffickers for Canton, Shekki and Shamshuipo,1 who went to the ship individually, there being no proof that the girls were in the traffic until they assembled on the boat. There was also the proposal that the Hong-Kong authorities should make suitable recommendations to shipping companies with the object of preventing the circumvention of existing regulations by traffickers who intended to smuggle their victims by way of Hoi Hao, on the island of Hainan, to places outside China. No information had reached the Secretariat regarding that suggestion. The Hong-Kong Regional Conference had further proposed, in respect of item II of the agenda, that the examination at Hong-Kong of female emigrants should be extended by law to cover the cases both of short-voyage passages out of China, and also of ships carrying a small number of passengers, but not enough to necessitate a passenger certificate.2 The police officials on anti-piracy duties should be instructed to keep a watch for apparent cases of trafficking in outgoing ships. It had been pointed out at the Regional Conference that the examination at Hong-Kong should be extended to all ships, non-passenger as well as passenger.

Mr. N orth (Hong-Kong) first considered the case of women leaving Hong-Kong for Tonking. Since the authorities of Indo-China required passports, the Chinese authorities were compelled to examine those women in order to issue such documents. It was therefore unnecessary for the Hong-Kong authorities to deal specially with them. Moreover, this was not a short voyage. The Hong-Kong Conference had proposed that vessels going from Hong-Kong to Swatow and Amoy should be supervised, since traffickers often sent their victims through those ports to Bangkok and Singapore. This danger of traffic would be avoided if Mr. North’s suggestion were adopted that women emigrants should be examined at the last Chinese port at which they called. As regarded recommendations to be made to the steamship companies, it should be observed that those companies were not responsible for supplying tickets to deck passengers ; this was a matter for the compradore. The situation at Hoi Hao would be cleared up if the women passing through that port were examined. The Hong-Kong authorities were prepared to study the recommendation that the present examination of female emigrants should be extended. That recommendation aimed at widening the control so that it might apply to women proceeding to Indo-China, Japan, etc., and to those going on board vessels carrying less than twenty Asiatics. It might involve an increase in staff, and would in any case give rise to legal difficulties. He would study the question on his return to Hong-Kong.

Mr. J o r d a n (Straits Settlements and Federated Malay States) said that, as regards vessels sailing from Hong-Kong to Swatow and Amoy, according to the laws applicable in B r i t i s h Malaya since 1933, the captain of the vessel was obliged to submit a list of passengers on arriving at Singapore. In that way, passengers were discovered who had made false declarations to the authorities of the previous ports of call with a view to deceiving them as to their destination. If any clandestine passengers were discovered, the captain was liable to prosecution. The Singapore authorities were thus doing everything humanly possible to prevent the facts reported by the Hong-Kong Regional Conference.

1 Document Conf. /C.T.F.E./ Orient 3, page 9. * Ibid., page 8. — 35 —

Prince S ak o l Va r a v a r n (Siam) said the captain was not legally entitled to shift responsibility regarding the accuracy of declarations on to the compradore, as was shown by a judgment on a case involving a captain and a compradore of a vessel on which numerous clandestine passengers had been discovered. As the shipping companies always took steps to defend a captain against whom a charge was made, it might be in their interest to examine carefully the suggestion made by the Hong-Kong Conference.

The P r e s id e n t declared the discussion on item II of the agenda closed. It was understood that the entire question and the suggestions relating to it would be referred to the Sub-Committee which had already been requested to consider item I of the agenda.

FIFTH MEETING.

Held, on Monday February 8th, 1937, at 9 a.m.

President: Jonkheer B a u d .

17. Possibility of abolishing Licensed or Tolerated Brothels in the East (Item III of the Agenda) : General Discussion.

M. S u n g (China) said that, in China, the brothels were not licensed, but were rather tolerated and under the control of different local authorities in certain localities ; they were subject to the payment of a tax. The first serious attempt to abolish the tolerated brothels took place in the year 1844, when an order was promulgated by the Emperor throughout the country. There was, however, no definite record as to its effect. Several attempts had been made to abolish tolerated brothels since the establishment of the Chinese Republic. In 1923, the question of abolishing the brothels had been brought up and discussed in the Lower House. In 1928, the same question had again been raised in the second National Congress of Kuo Min Tang. It had been decided that the abolition of tolerated brothels should first come into practice in Nanking. The following measures had consequently been adopted and duly enforced : (1) To stop the levying of the tax ; (2) To urge the prostitutes to take up proper professions ; (3) To expel them from the municipality ; (4) To enlarge the capacity of the Welfare Homes and establish factories where the prostitutes would be given work and could earn their living. In 1935, the Canton municipality had promulgated the following measures concerning the abolition of tolerated brothels : (1) The enforcement of the regulations for abolition was carried out in two stages : (a) All the prostitutes must be registered within six months after the promulgation of the regulations ; (b) During the second six months, all the brothels must be closed ; (2) After the termination of the year, all the prostitutes were compelled to change their professions ; (3) Welfare Homes were established for them. In 1932, the Ministry for the Interior, in response to repeated petitions by the voluntary organisations in the country and in consultation with the Commission of Enquiry into Traffic in Women and Children in the East, promulgated the following orders to the provincial and municipal Governments in connection with the abolition of prostitution : (1) The traffickers are to be punished, according to law ; (2) Parents who, owing to poverty, force their daughters to practise prostitution will be punished, according to law, on being discovered either through the petitions of their daughters or through prosecutions ; (3) Those who are really forced by poverty into prostitution will be assisted in acquiring new vocations ; (4) Those prostitutes who are maltreated will be sent to Welfare Homes and be married in due course ; (5) Handicraft shops for poor and unemployed women workers will be established by the local authorities and charitable organisations. In Shanghai, the situation was quite different from that in all other places. Formerly, prostitution and brothels had been generally confined to the International Settlement and French Concession. Prostitution in the International Settlement was licensed, but no fees were levied on the existing establishments. In 1919, a resolution had been passed at a ratepayers’ meeting to the effect that a Committee should be appointed by the council to investigate the condition Vlce in Shanghai. The plan for eliminating the brothels, as recommended by the Committee, — 36 — was to issue licences every six months and to subject them to annual withdrawals. Acting upon the recommendation, the municipal council had issued licences and gradually withdrawn them. All the licensed brothels in the International Settlement had been nominally non-existent on December 31st, 1924. In Peiping, three years previously Mayor Yuan had been strongly in favour of suppressing prostitution. He had ordered the closing-down of all the dancing-halls in the area under his jurisdiction. As regarded actual conditions, the places mentioned-that was to say, Nanking, Canton, Shanghai — and Peiping— where brothels were not even tolerated, could not be considered entirely free from the vice. Clandestine prostitution still existed, though it was not apparent or extensive. It must be pointed out, however, that in the places mentioned above, no prostitution had hitherto been carried on in other forms in dancing-halls and massage establishments, with the exception of two or three dancing-halls in Peiping operated by foreigners. In other open ports and trading centres in China, no tangible results had been achieved. Prostitution still existed in a clandestine form. It was reported that, in Kwangsi Province, strict control over prostitution in both tolerated and clandestine forms had been exercised. All prostitutes had to wear black gowns and a paper flower on the gown. That was due to the strict control of the provincial Government through the vigilant activities of the police force. It was also due to the fact that the prqvince had first adopted the system of Pao-Cha — that was to say, mutual guarantee and supervision — while the social and economic conditions were also unfavourable to the carrying on of prostitution. In addition, as far as M. Sung was aware, the efforts made by the Kwangsi Province had proved very satisfactory and successful.

Professor L a b r o u q u è r e (France) wished to divide his remarks into three parts : (1) the evolution in the view of the French Government on this question, (2) the special position in the Far East and (3) compensatory measures connected with the protection of prostitutes. The Traffic in Women Committee had from the outset urged the abolition of licensed houses. The abolitionist countries, which formed the majority, had been influenced by the efforts of the women’s associations. That majority had been further increased by the accession of Belgium, Italy and Spain. In 1925, the Traffic in Women Committee had carried out an enquiry in twenty- eight countries of Europe and America and, in 1932, it had made a further enquiry in the Far East. Those two enquiries had led to the same conclusion—namely, that one of the main factors in the traffic was the licensed brothel, which provided the largest market for the traffic in women and children. As a result of those enquiries, the Assembly of 1934 had passed a resolution urging the Governments to abolish the system of licensed brothels. The women’s associations had for years been in favour of that campaign and had perhaps taken too general a view and paid too little attention to local conditions. In view of this general international movement, a change had taken place in the French position. Until 1929, the French Government had considered that the regulation of prostitutes and the abolition of brothels was not a matter for the Government, but rather for the municipal authorities. Under the pressure of public opinion some municipalities had already abolished licensed brothels. There had been no radical change in the view of the Government, but rather a gradual evolution under which the subject had assumed an international rather than purely internal aspect. The French Government thought that abolition was an ideal for the future and must take account of certain local conditions. How was that new French theory applicable to the Far East ? France always tried to bring her colonial legislation into line with the legislation of the home country, though such legislation had to take account of the difference in the population and of certain actual facts. In Indo-China, abolition constituted a fundamental change ; it was the ultimate aim which, in the absence of certain essential conditions, could not be put into immediate application. For instance, there was no registry of births, marriages, etc., of women in Indo-China by which their status could be determined. According to local customs, the birth of a girl was an unlucky event and, in Annam, the birth of girls was not declared. Furthermore, women were in a definitely inferior position. Abolition, in order to be successful, presupposed the education of women, who, in Indo-China, were illiterate. The authorities were doing their best in that respect, but encountered severe local opposition. Abolition also presupposed the establishment of medico-social centres of treatment, social workers, etc., which as yet did not exist. It would therefore be seen that a number of conditions necessary for abolition had not yet been realised. The country was over-populated and the people were very poor. The Government had done its best to prevent natural calamities, such as famine, plague, etc., and public institutions had been created for the purpose. Steps had also been taken to improve the status of women and to extend education. The half-castes in Indo-China were in a special position. Their salaries were low and, as they desired to live like Europeans, they fell easy victims to prostitution. It was stated that 50 % of the half-breed women were prostitutes. Almost all the licensed houses for Europeans had been suppressed. It was also proposed to suppress the native brothels which, however, existed only in large towns. In Hanoi, with a population of 130,000, there were 160 women under police control, and 1,500 casual prostitutes. Immediate abolition of licensed houses was not considered advisable, but it was thought that the most advisable course was half-way between abolition and regulation. It was also felt that this would take time, as provision must be made for the rehabilitation of the prostitutes. As a — 37 — supplement to such measures, prophylactic health measures were also contemplated ; action had been proposed against venereal disease and clinics were to be opened where the natives could have consultations free of charge. Such clinics had been opened in towns like Saigon and were welcomed by the population. Anti-venereal propaganda was also being carried on by means of posters, lectures, school instruction, etc. Measures were being taken to improve the material position of women, and thus enable them to escape from the traffic. In addition, the Committee was studying the means of rehabilitating women, preventing prostitution and suppressing the international traffic. In France, the so-called Sellier draft law on prostitution had been adopted and would have an important effect on the position in Indo-China, where it would probably be applied during the present year. It provided for penalties against traffickers and gave greater power to doctors in their campaign against venereal disease. It was supplemented by provisions enabling the Government to rehabilitate prostitutes and provide treatment for diseased young people. It might therefore be said that the Government was taking great steps towards abolition by administrative, legal and medical means. Speaking generally, the Government was abolitionist but, in view of local conditions in Indo-China, was not at present in a position fully to introduce the system in that territory.

M. A kag h i (Japan) pointed out that the licence system still existed in Japan. A s regarded its features and general tendency, enough had already been said on various occasions by Japanese delegates, at a number of sessions of the Traffic in Women and Children Committee of the League of Nations. He would therefore merely give a brief account of the situation, and the efforts made to improve it. Japan was second to none in appreciating the continued devotion, on the part of the League of Nations, to the suppression of this system throughout the world. But, as the system in Japan excluded women of foreign nationality it was a purely internal question and had nothing to do with the international traffic in women and children. Accordingly, he was firmly convinced that Japan had no reason to call for international co-operation in that question. It was a matter which should be left entirely for Japan to settle from her own point of view. The legal recognition of prostitution — admittedly a social evil — was, however, clearly not desirable from the social, moral and humanitarian points of view, and the final solution of this moral contradiction was now under conscientious investigation by the Government. As a matter of fact, this had been one of the most difficult problems for more than half a century, since it had been taken up by the Government in the hope of finding a proper solution. Traffic in human beings, in its literal sense, had never existed in Japan, and the conception of , slavery was quite alien in Japanese thought. But, as the licensing of prostitutes had tended to create a personal status which was not very far from that of victims of the slave traffic, traffic in women was entirely prohibited throughout the country by a decree of October 2nd, 1872, and thus licensed prostitutes were legally set free. But as that step had been taken suddenly, regardless of the actual situation at the time and without any consideration for subsequent measures, it had given rise to a state of confusion in certain spheres of society, and had soon resulted in a return to the former practice. Even after that time, the licence system had continued to be seriously criticised, and, in 1875, the Prefecture of Kumagaya — now known as Saitama — and, in 1891, that of Gunma, had abolished the system altogether, and that tendency had become general in other parts of the country. At the same time, many prostitutes, encouraged by that tendency, had voluntarily abandoned their profession. That state of affairs, however, had again caused trouble and had led to some social disorder, and the Government, taking the whole situation into consideration, had issued a Home Office Ordinance, in 1900, for the control of licensed prostitutes and brothel-keepers ; th a t ordinance was still in force. Its object was to reinforce police functions in the sphere of public morals and social hygiene, on the one hand, and to bring about a nationally unified criterion for the protection and control of licensed prostitutes on the other. It was laid down that, in order to become a licensed prostitute, the consent of the person concerned and of her parents was essential ; moreover, the application was rejected unless the authority, after careful examination, considered that there was no alternative ; lastly, it was provided that the prostitutes could give up their business of their own will at any time. At the time of the enactment of the above regulations, care had been taken to limit the evils to a minimum, and that principle had been precisely adhered to by the authorities concerned. Accordingly, it had been a definite policy of the authorities not to permit any increase or expansion of licensed premises. Despite all this, the Japanese Government was well aware that this was one of the greatest social questions for which some solution must be found, and it had for a long time been seeking the means to that end. . This system had, however, been established for over 300 years and had developed gradually mto the present situation. It could not be foreseen what unexpected social friction might ensue th r attempt were made to abolish it at one stroke throughout the country. Accordingly, Government’s present aim was to effect the solution in the most natural and peaceable way possible. The whole situation h ad been investigated, measures had been taken, and some of em had already been put into effect. - 38 For the sake of comparison, M. Akaghi would refer to some of the information given in the Japanese Government’s reply. Certain changes had taken place by the end of 1935 in the statistical figures given in 1931 when the Commission of Enquiry into the Traffic in Women and Children in the East had gone to Japan. Thus, the number of licensed premises in Japan proper had been reduced from 541 to 468, that of licensed brothels from 11,1541° 9,326, the number of prostitutes from 50,056 to 45,837 ; all considerable decreases. Those decreases were mainly due to the abolition of the licence system in three Prefectures — namely, Akita, Nagasaki and Aomori. In the districts which had abolished the system, the authorities were anxious, in close co-operation with private organisations, to rehabilitate the prostitutes in the manner indicated in the reply. The experiences of those districts before and after abolition might be of some interest, but as they had been clearly explained by the Japanese representative in the sessions of the Traffic in Women and Children Committee in 1933 and 1934, it was unnecessary to go into details. It would be sufficient to state that the partial revision, in 1933, of the Home Office Ordinance of 1900 for the control of licensed prostitutes tended to facilitate abolition, and that the efforts of private organisations played an important rôle in educating public opinion. One exajnple of abolition would illustrate the complexity of the question in Japan. Five out of forty-seven Prefectures had abolished the system, and once abolished, it was impossible to restore the former system. It was becoming more generally known that those abolitionist districts had experienced no small improvement in so far as social, moral and hygienic conditions were concerned. In addition, eleven Prefectures had passed resolutions for abolition in the prefectural assemblies. It would thus be seen that public opinion was also becoming more favourable to abolition, and the time was approaching when abolition would be effected in a greater number, and even in the majority, of the Prefectures. Lastly, M. Akaghi would like to correct certain errors in the report of the Commission of Enquiry1 which were likely to lead to misunderstandings. For instance, as regards applications of licensed prostitutes to be struck off the list, the report stated : “ In some instances, mostly at the appeal of a brothel-keeper who claims to have been defrauded, the police find it adequate to call the employer into consultation with the applicant for release and also, on occasion, her parents or relatives. In the many cases in which a prostitute has entered the life mainly to obtain for parents or relatives in distress much-needed financial help, the appeal to her filial devotion during such consultation is said to result often in her return to the brothel under some compromise or other with regard to repayment of the debt.” As, however, the Government had been most anxious that Article 6 of the Regulations of 1900 should be strictly enforced, such a case had not occurred for the last thirty years.

M. S a m pa io (Macao) said that, according to Portuguese law, prostitution was not punished as a crime. No penalty was provided for the exercise of that profession either by the Penal Code or any other law. From the moral point of view, prostitution must without doubt be censured, and was an evil which should be eliminated from society. But it was first necessary to reform economic and social conditions. Indeed, there was no doubt that prostitution was in inverse ratio to the economic condition of a district, of a country, and of the world in general. It had always existed everywhere and would continue to exist. The strictest legislation and the firmest determination would not result in suppressing it. It was due to instinct and the remains of the animal in man. In face of this reality, therefore, the authorities should use all the means in their power to restrict the development of prostitution. This necessitated : (1) A change in existing economic conditions ; (2) Adequate social reforms for protecting girls and women from prostitution ; (3) Sexual education both for men and women ; (4) Moral education for both sexes. Any steps taken to prevent the recruitment of prostitutes would contribute also to the great work of social health. But, since prostitution could not be entirely suppressed, the Portuguese authorities did not prohibit it, but regulated and supervised it by adequate laws. Portuguese legislation aimed at restricting the evil, and circumscribing as far as possible its evil effect on morals. As regarded Macao, therefore, Portugal, as in the home country, did not desire to abolish prostitution for the time being, but preferred to secosnise it and to regiilate and reduce it, in order to combat it more effectively. The system of regulation aimed at registering the prostitutes ; it provided for periodical medical examination and for isolation a n d treatment during the period when there was danger of contagion. If the brothels were closed, prostitution would become clandestine and would be more harmful on account of the lack of sanitary control, the display of vice in the streets, the easier access to inexperienced youths, etc. " Regulations regarding Prostitutes ” at Macao related only to Chinese women, and no other women were authorised to register. European women were not in any case registered.

1 D ocum ent C.849.M .393.1932.IV (pages 73, 103 and 104). — 39 — In spite of all the difficulties mentioned in the reply to the questionnaire (see Annex 4, page 99), the Government of Macao was studying a plan for the gradual suppression of brothels in order to submit it for the approval of the Portuguese Government. The Government of the Colony had on various occasions considered this serious problem, but it was afraid of increasing the evil, with all the moral and material disadvantage it entailed, instead of decreasing it. The system of regulation at Macao was so strict and gave such good results that, while there was no display of vice in the streets or in other public places, the number both of brothels and prostitutes had decreased. This had taken place in the very years when brothels had been closed in the surrounding territories. The Government was prepared to co-operate with all the organs dealing with this problem, and the delegation of Macao would be glad to submit to them its suggestions based on the recommendations of the Conference.

Professor Co r r e ia (Portuguese India) said that prostitution in Portuguese India could be regarded from the social point of view and from that of public health. As prostitution in India was the trade of a certain category of women who were victims of various social factors, it should be regarded as an inevitable fate, or rather as an unfortunate reality, which had existed from the most ancient times. There was no more active cause of prostitution than poverty. Apart from the economic factor, environment also played an important part. The means adopted to diminish prostitution had varied and still varied according to the psychology of the peoples. In some cases, moral prophylaxis by means of education was recommended, and, in other cases, medical prophylaxis. As regards the moral point of view, all systems were in agreement in forbidding prostitutes to solicit in the streets or to offer ostensible invitations of a kind calculated openly to offend public morals. From the point of view of public health, on the other hand, there were wide differences of opinion, according to whether the persons concerned were in favour of individual or of State prophylactic action. But, even in that sphere, everyone agreed that the most essential task was to treat the diseased persons, while the value of the methods of persuading them or, if necessary, of compelling them to undergo treatment was still a matter of discussion. But neither of those two systems could furnish a complete solution, and it was therefore necessary to combine the various methods of conducting the campaign. Health supervision over prostitution, which reconciled abolitionism with the system of regulation, the social protection of abandoned and unemployed women, assistance to indigent persons and children, the suppression of traffic in women, the proper organisation of the police in charge of public morals, legislation in favour of invalids, scientific and moral propaganda in respect of all aspects of the problem : these were the principal prophylactic legislative and educational measures to be adopted. At the present time, there were no less than three systems. The prohibitionist or American system was the best in theory, since, in suppressing prostitution, it suppressed the diseases propagated by prostitution. But how could prostitution be suppressed in practice ? That was impossible, and the attempts to suppress it merely created clandestine prostitution. The abolitionist system was of English origin, and it was also powerless against free prostitution carried on with a sufficient degree of discretion. The system of regulation often only affected a certain part of prostitution and to an inadequate extent, at any rate as regards the spread of gonorrhoea. This system was at present in force in some European and American countries. The prohibitionists, the abolitionists and the regulationists were therefore, in fact, disarmed by clandestine prostitution which really represented the venereal danger. Before dealing with the special position in Portuguese India, Professor Correia would speak of the aetiology of prostitution in that country. Apart from the general causes of prostitution in Portuguese India, there was a cause of religious origin. In that country, devadasism, which was a social, semi-ritual and semi-traditional institution, compelled women of a certain caste to become prostitutes. The bayaderes did not marry ; they were attached to the service of the pagodas and could not be under the authority of a man, but were at complete liberty to have transitory relations, so long as they never refused their favours to the Brahmins. The children bom of these women did not belong to any caste ; if they were girls they became bayaderes like their mothers, and if they were boys they became musicians and the father remained unknown. Apart from the devadasi, there were other Hindu prostitutes who could become devadasi without been bom in that caste. The life led by the bayaderes did not predispose them to fecundity, and their number would rapidly decrease if it were not increased daily by the fact that parents of certain castes offered their third daughter to the pagoda before she reached the age of five years. As soon as a girl entered the pagoda she was lost to her family, who could never claim her under any pretext ; she lost membership of her caste, and her whole time was devoted to the service of the temple and of love, until her features and figure were deformed by age. In some parts of India there was a Hindu custom under which the parents, in order to obtain some favour from the gods, consecrated their first daughter to them. The daughter offered Plight also be one who was for some reason particularly beloved ; if she were considered useless in ner natural surroundings, she was offered to the temple. The child was then handed over to the emple women to be instructed in dancing and singing. Apart from these two categories of devadasi, there were Hindu widows who helped to maintain the enormous legion of Hindu prostitutes. With very rare exceptions, it might be said that there was not a woman in the whole 0 *ndia who had reached the age of puberty who was not under the authority of a husband. — 40 — Not only did celibacy not exist for women, but it was exceptional for men, even if the widowers were taken into account. Hindu women had to be married before reaching the age of puberty. On account of these precocious marriages, girls became widows when they were scarcely nubile or still in their childhood. Widows, whether children or adults, could never re-marry. Moreover, they became the drudges of all the members of the deceased husband's household. The hardest duties were reserved to them ; they had no comfort or rest. They had only one extremely simple meal per day. They had to submit to strict fasts, to shave their heads, to abstain from all ceremonies or rejoicings, marriages and religious festivals ; they had to keep out of sight of women in labour or any other person who might be injured by their evil eye. Under those circumstances it was not astonishing that these young widows should form a large proportion of the inmates of brothels ; according to certain figures they represented 30 % of the total number of prostitutes. In these houses, there were still some hundreds of Goanese bayaderes, most of whom were Indo-Portuguese only in name, since they had m erely been bom in the territory of Goa. At Goa, as in the whole of India, there were two kinds of prostitution : the voluntary prostitution of Christian women, the number of whom was very small as compared with the bayaderes or Hindus, and the prostitution practised by the latter who formed the vast majority. They lived alone or with members of their family, but as they did not live in groups in one house for the purpose of prostitution, their dwellings could not be regarded as brothels in the true sense of the word. That was why regulated prostitution existed in Portuguese India, although brothels properly so called were very rare. The authorisation granted to the Hindus to maintain the prostitution of the bayaderes was a result of the policy of religious tolerance inaugurated by Albuquerque. Devadasism, which was an integral part of Brahminic rites, might be regarded as ritual, semi-clandestine, but regulated prostitution ; on the other hand, there was no international traffic in women and children in Portuguese India. Without desiring to upset age-old customs at one stroke, the Government of Portuguese India was endeavouring to change this state of affairs. The first measure it had taken was the decree of July 31st, 1930, prohibiting all ceremonies for initiating girls of the devadasi class to the life of prostitution. That measure might be followed by others, but caution was necessary in order that the success of action running counter to tradition, prejudice and simple age-old customs might not be prejudiced by excessive haste. Professor Correia had already had occasion to stress the benevolent work of the private associations ; there were four associations in Portuguese India engaged in the protection of women and children. They were the Misericordia of Goa, the Hospicio of Margad, the Asilo of Mapuga and the Assistencia à indigencia. Those associations greatly assisted the Government in its task of protecting indigent and invalid persons, in particular, indigent women and abandoned children. In addition, the administration of Portuguese India had issued some laws in favour of farmers and workmen, the most important of which were Decree No. 1335, of February 22nd, 1932, and Law No. 591, of August 25th, 1932. In addition to the invalidity pensions payable to farmers and to workmen in the State service, these laws compelled private firms to grant the same benefits to their staff. They also contained other provisions regarding workmen’s compensation. Regulated prostitution was therefore justified in Portuguese India, where social assistance, and especially the protection of women and children, were so much developed that the colony was one of the most advanced territories in that respect. In conclusion, Professor Correia said he would transmit to the Government of Portuguese India all the suggestions made in and approved by the Conference.

Prince S a k o l V a r a v a r n (Siam) said that the Siamese delegation, before coming to the Conference, had prepared to discuss the question in all its aspects, including that of the competence of the League of Nations in respect of the subject covered by this item of the agenda. In view, however, of the remarks by the President and the learned dissertation of Professor Labrouquère, it would change its plan, and now hoped that the contribution which it would make to the examination of item III of the agenda would be useful. In order to sum up the situation existing in Siam in respect of prostitution, he quoted some passages from the Report of the Commission of Enquiry into Traffic in Women and Children in the East (pages 310 et seq.) .1 In Siam, there was no organisation really well equipped for the campaign against prostitution and traffic. While the report of the Commission of Enquiry gave the figure of 400 clandestine prostitutes in Siam, the heads of police districts in Bangkok whom he had consulted put the figure at about 6oo, but everything depended on what was meant by clandestine prostitutes. The Siamese Government had appointed a committee to deal with the question of prostitution, of which he was himself chairman. The work of that committee had led in the first place to the policy of the Government in this respect. In its main lines, it was as follows : the Government was in favour of abolition, but considered that that question only formed part of the entire problem of prostitution. It thought that action should be taken with caution, in order that the closing of the brothels might not be injurious to public order and health. In that respect, it would be

1 D ocum ent C.849.M.393.1932.IV. — 4 i — necessary for Siam to ascertain the experience gained and the view held by other Eastern countries in which abolition had been tried. Summarising the conclusions of the interim report of the Government Committee, Prince Sakol Varavam explained that, before taking legislative steps to abolish the brothels, the protection of women should be organised and measures should be taken against soliciting, etc. This organisation could be best entrusted to the local governments. Compulsory education for both sexes and the improvement in the status of women in Siam would be helpful for that purpose. In Siam, women possessed suffrage, and that was a necessary element for further progress. As regards public order, it would appear from the documents communicated by the League of Nations that, in most countries, abolition had been followed by an increase in soliciting and a change in public order to which reference had been made in the Press. In Siam, soliciting was at present almost non-existent, hence the country needed to obtain the opinion of the representatives of other countries on that point. The question of souteneurs had, for the first time, been the subject of a thorough enquiry which had extended to all classes of the population. In that manner, it had been ascertained that the problem had assumed considerable importance in the country. It might almost be said that, both as regards brothels and street prostitution, there was a souteneur wherever there was a prostitute. The committee had also studied the question of the incidence of venereal disease and had reached the conclusion that it was absolutely impossible to prove that abolition could either increase or decrease the incidence of venereal disease. This was therefore a subject of discussion to be avoided in order not to give rise to misunderstandings. Prince Sakol Varavam then gave an account of the progress made in respect of sexual education in Siam. Young men and girls who had attended the higher schools received such education. In addition, the doctors, hospitals, dispensaries, etc., did much to educate the public. He then turned to the problem involved by the Chinese population ; this was not negligible, since most of the brothels were kept by Chinese and the majority of the prostitutes were Chinese. In that connection, it should be pointed out that Siam, an independent and self-governing country, was not in a position to separate the Chinese question from the other problems with which she was faced, as the colonial Governments were able to do. Any measure which it adopted should be applicable to the entire population. The Chinese population, consisting of shopkeepers, employees and coolies and living mostly in the towns, was estimated by the authors of the League report at just under one million out of a population of thirteen and a half millions. Among the Chinese, the excess of men over women would be about 100,000 in the towns. The Siamese Government declined to take any discriminatory measures against the Chinese community. Prince Sakol Varavam then sketched the history of the idea of abolition in Siam. The first public statement made on the subject had been on the occasion of the Conference of Public Health Authorities in the East in 1930. The Department of Public Health had been convinced, even before that, that medical control of brothels was useless, and had therefore decided to stop medical examination of prostitutes. The visit of the League Commission had given rise to discussions which had, however, soon died down. In short, on consulting the report of the Siamese Government Committee, it would be found that the position in the country had not greatly improved since th at visit. There was, however, one point which he would like to stress — namely, the value of free treatment of venereal disease. After a thorough study of the question, the public health authority had adopted the cubicle system of St. Thomas’ Hospital in London, which greatly helped to reduce the cost per capita. Prince Sakol Varavam went on to explain that the Buddhist religion practised in Siam was, in general, extremely tolerant, that it permitted sexual education and was in no way opposed to the abolition of brothels. Siam had thus been able to tackle the sexual problem quite objectively, but the study of the problem nevertheless encountered great difficulties since it related to a matter on which people were naturally reticent. Action must be taken with tact and comprehension, and at the present time education was given not only in the higher schools, as mentioned above, but in the army, universities, etc., by means of lectures and films on such subjects as venereal disease and its danger. He had read with the greatest interest the League document concerning abolition ; 1 it was very complete and detailed. But such a document only appealed to a somewhat restricted public which was capable of understanding and appreciating a technical dissertation. It had been translated in its entirety into Siamese. The Conference, in dealing with the problem referred to in the memorandum, should see that it did not fall into one of two extremes : complete abolition and the yoshiwara system. In fact, there was nothing which could equal appropriate instruction and education of the public. The work of the Conference was an example of that kind of instruction and education, and it should not take the form of bulky and tedious documents. In order to appeal to the public with any prospect of gaining a hearing, it was necessary to be simple and suggestive and to avoid complexity of ideas. The Conference would be more useful through its contribution to public education through any pressure which it might exercise on the Governments in favour of the abolition ‘he system of regulation. Legal abolition was part of the ideology of the League, but the

1 Document C.221.M .88.1934.IV. — 42 — important matter was not a purely legal result, but real abolition. In order to attain that result, there should be a well-organised campaign against the exploitation of sexual vices which constituted the cause of the traffic.

Mrs. M u k e r j e e (India) said that there was no system of licensed houses in India. The general policy of the Governments in India concerning prostitution and allied questions, as the Commission of Enquiry remarked in its report, was one of abolition, there being no licensed houses for prostitutes and no compulsory medical supervision of prostitutes in the country. Speaking generally, there was neither registration of brothels nor of prostitutes with the exception that, under a voluntary and informal system, the names of inmates of some European brothels in Calcutta and of brothels generally in Karachi were furnished to the police. The effect of the last-mentioned arrangement was to assist the police in ensuring that no woman was unwillingly detained, and it did not involve the registration of, or issue of permits to, brothels. The Government of the Central Provinces (Nagpur) had stated that, although there were no licensed brothels, there was a small number of “ tolerated ” ones, the abolition of which did not seem to be feasible at present. In a few localities, there was growing public opposition to the existence of such houses, and action under the Municipal Act was being encouraged. Government had always encouraged the introduction of laws suppressing tolerated houses. In that respect, a considerable amount of propaganda had been done by women’s organisations for the abolition of brothels. In Mrs. Mukerjee’s opinion, the existence of brothels or tolerated houses was an encouragement to traffickers. Wherever brothels existed, traffic also existed. The abolition of brothels could not, of course, eradicate prostitution altogether. On that point, she agreed with the view expressed by a number of delegates that that could only be done by education. Mrs. Mukerjee was also convinced that the existence of licensed houses and brothels w as a factor in the spread of venereal diseases. In that connection, she was glad to be able to state that, as far as she was aware, in several provinces in India medical assistance was given free of charge, and in places where it was not so given efforts were made to draw attention to this need.

The P r e s id e n t was glad that most of the delegations had expressed themselves in favour of the abolitionist movement. In that connection he wished to pay a tribute more particularly to those of Indo-China and Siam. He desired to recall the reasons for which the possibility of abolishing the brothels in the East had been placed on the agenda of the Conference. Those reasons were contained in the report of the Commission of Enquiry, which strongly emphasised the relationship between brothels and the traffic. The explanations given by the Japanese delegate showed that this relationship did not apply to the case of Japan ; the Conference had been all the more interested to learn that there was a strong movement in that country in favour of the abolition of brothels.

SIXTH MEETING

Held on Tuesday, February gth, 1937, at 5 p.m.

President : Jonkheer B a u d .

18. Possibility of abolishing Licensed or Tolerated Brothels in the East (Item HI of the Agenda) : General Discussion (continuation).

Mr. J o r d a n (Straits Settlements and Federated Malay States) regarded the statements made at the previous meeting in one important respect as a milestone in the progress towards abolition and the end of regulationism. He believed that it was the first occasion on which not a single delegation had tried to justify regulation outright. Every country had expressed the wish to put an end to th e system of tolerated houses and to rem ove any difficulties in the light of the expenence gained by countries which had already taken that step. Mr. Jordan would therefore like to give his experiences in the Straits Settlements and the Federated Malay States. He would avoid repeating anything which had appeared in print, but would be glad to reply to questions on any points which were not clear. He would refer to the League Publication " Abolition of Licensed Houses ”, document C.221.M.88.1934.IV, which showed on pages 75 to 83 the steps gradually taken in the Straits Settlements and elsewhere in British Malaya for the closing of tolerated houses. The authorities had proceeded slowly and carefully and after due preparations had been made. He would also refer to document Conf./C.T.F.E./Orient 3 which, on pages_i8 and 19, gave a further statement of the steps taken — 43 — in British Malaya. Pages 29 to 31 of the same document gave an account of recent legislation in the various Federated and Unfederated Malay States.

There was a radical difference between traffic and prostitution. Traffic was often intern ational and was therefore the direct concern of the League of Nations. But prostitution was, in the main, a matter of internal administration and only indirectly concerned the League inasmuch as it created and stimulated a demand which the trafficker supplied.

The report of the Commission of Enquiry1 stated on page 94 that the existence of licensed brothels in an eastern country was a determining factor in making that country a place of destination for international traffic. It was stated on page 95 that, in addition to being the business establishment of persons exploiting prostitution legally, the licensed brothel was a depot in which victims of international traffic might be held until ready for exportation, and a centre of business for traffickers moving girls from one place to another.

This was perhaps one of the main reasons which had convinced the Governments which he represented that prostitution was not purely an internal affair, but that it had an international effect on traffic, and those Governments had therefore decided to abolish regulated prostitution. Subsequent experience had shown that, as regards traffic, that action had been abundantly justified. Since the recognised brothel had been closed by law, international traffic had been a very small fraction of the previous figure. The Governments in question were satisfied with the results of their policy, and had no intention of departing from it.

It was idle to pretend that there had been no opposition at the time to such a policy or that such opposition had died away, though it was not so strong at present as in 1929. Indeed, the most influential newspaper in Malaya still advocated a regulationist policy. But those who had come into closer contact with the problem were convinced that its attitude was illogical and unsound, and that the newspaper had, to a great extent, ignored the facts and figures which did not agree with its view and which demonstrated the benefits to public health and public order which had accrued from the closing of licensed houses.

One of the facts that had overcome the opposition to the Government’s policy in the Legislative Council and elsewhere at the time was that the Government based its policy on the principle that if a woman sold her body she alone should benefit from such sale. The Government realised that it could not prevent individual women from engaging in prostitution, but it set out to prevent any third person from making a profit out of her act. Thus, not only did the Government not make it illegal to prostitute, but it disarmed some of the most ardent opponents of the legislation by undertaking, at any rate for a period of years, that they would not harry the individual prostitute. In parenthesis, he might say the time was now perhaps approaching when some steps would have to be taken against individual prostitutes, on account of the fact that two or three groups of old, hardened and diseased alien women were a serious danger to health. It might be necessary to use the existing banishment powers against such women. The legislation of 1930 made it punishable for the first time for a female to aid or abet or compel prostitution. This had had a very good effect and the Government was at present considering the possibility of going still further and putting the female who lived in whole or in part on the earnings of a prostitute in the same legal position as a male, thus making her liable to the same punishment.

Mr. Jordan would like to refer to some of the prophecies made by the opponents of the legislation and to state how far they had proved justified, especially as some delegates had asked for information on those points.

It had been feared that abolition would result in increased attacks on women. The League report, “ Abolition of Licensed Houses ”, page 79, 2 gave figures of cases of rape in the Straits Settlements and the Federated Malay States. He would bring those up to date. In the Straits Settlements for the years 1927 to 1930—that was to say, the four years before the closing of the brothels—there were 39 cases of rape, making an average of 9.75 per year. In the years 1931 to 1936 there were 78 cases, making an average of 13 per year. For the Federated Malay States the figures for the four years before abolition were 50 and for the six years after abolition 101, making an average of 16.66 per year for the former period and 16.83 for the latter period. There was therefore no ground for the fear that abolition would cause a great increase in the cases of rape.

A further argument against abolition was the deleterious effect on public health, through an increase in venereal disease. Mr. Jordan then submitted three tables of figures for the years 1932 to 1936 (see Annex 3, A, page 79).

Table I showed the figures of the treatment of women in the Straits Settlements. With regard to those figures, the Director of Medical Services had stated that he placed no value on e feU in new cases as an index to the fall in the venereal diseases rate among women, as he was convinced that only the fringe of the problem had been touched as regarded infected women. 0 encourage attendance, they were not asked to go to special venereal disease clinics, but were seen by specialist doctors at out-patient dispensaries where general diseases were treated.

* Document C.849.M.393.1932.IV. Document C.221.M.88.1934.IV. — 44 — Table II gave the total new cases of various venereal diseases (men and women) treated at centres at Singapore. Those figures showed a fairly marked fall in the total cases of venereal disease treated at Government hospitals and clinics since 1932, though there was a rise again in 1936 which was reflected chiefly in cases of gonorrhoea. The Director of Medical Services did not consider this surprising in view of the experience of European countries where there was scarcely any appreciable fall in the disease, in spite of extensive propaganda and of free treatment centres. The Director of Medical Services had been gratified at the reduction of nearly 50 % in the figures for syphilis since 1932, especially on account of the havoc which that disease caused among infant life. Table III gave the figures for women in the various Federated Malay States and the tendency was approximately the same as in the Straits Settlements. In the Unfederated Malay States, with their peasant population, venereal disease was not the same problem as in the large towns. The British Advisor for Kelantan wrote that venereal disease was only a major problem in the few towns where there was a comparatively high percentage of foreign residents who immigrated without their women folk. Table IV gave figures for the European troops in garrison at Singapore. It showed that the average of the annual ratios per thousand from the years 1922 to 1930 was 103.2, while in six years since abolition it was 55.8. The general conclusion to be drawn from the figures seemed to be that the effect on public health had been very beneficial in spite of the fact that, during the period covered by the figures, there had been great changes in economic conditions. Various opinions were held as to the effect of economic conditions on prostitution and on venereal disease, but Mr. Jordan would not go into that question. A further argument of opponents of the legislation was that it would result in an increase in the total number of prostitutes. Advocates of regulation usually spoke as though there were no clandestine prostitutes under that system. Mr. Jordan had had eighteen years experience in Malaya under the system of tolerated houses and he could state that there were always large numbers of clandestine prostitutes in addition to those in the licensed houses. He understood that this was the case in other regulationist countries. The experience both of the police and of the Chinese Protectorate was that, since abolition, the number of clandestine prostitutes was very much less than the total number of registered and clandestine prostitutes, taken together, before abolition. Another argument against the legislation was that when the brothels were closed the prostitutes would be dispersed to new areas and that there would be an increase in solicitation and street-walking. To some extent, this had proved to be the case, but those evils had been to a considerable extent checked by good police work. Mr. Jordan was afraid that a dispersal of prostitutes to new areas was inevitable after abolition. But the increase in solicitation and street- walking might be an indication of the success of administrative action. There was no longer the ' brightly-lighted brothel quarter to attract attention and, when the hardened prostitute found that the former advertisement of her presence had gone, she set out to attract clients by some other form of display. Solicitation was the first form of advertisement to which she had recourse. In Singapore, there had even been cases of the prostitutes exposing their persons but a few convictions had soon put an end to this indecency. One interesting result of abolition had been that the prostitutes had now greater confidence in the police, the officers of the Protectorate of Chinese and other Government Departments. Such confidence had been impossible formerly when the brothel-keeper had almost the appearance of being a government agent in the eyes of the prostitute, and it was exceptional for girls to look for help to a Government which authorised their admission to a brothel. There had been one valuable though unexpected result of abolition. An end had been put to the brothel bully and the " protector ” of the prostitute. The fights which used to occur between rival gangs “ protecting ” competing brothels had ceased. This had been a great gain in public order which the police force would be loath to lose by a return to the old system. The Siamese delegate had stated that sexual education was being given in girls' schools of higher grade. The authorities in British Malaya were doing the same in boys' and girls’ schools. They also organised public lectures to suitable audiences, showing the effect of venereal diseases. In addition, there was a motor caravan which gave lectures and showed films in country districts. The Siamese delegate had referred to the difficulty of obtaining suitable literature and had stressed the necessity of simplicity and suggestion. That remark showed the advantage of a knowledge of Asiatic psychology. From his own experience, Mr. Jordan knew the appeal made to a Chinese audience by a lecturer who constantly repeated the same idea in simple language. Miss Shephard (whose illness he greatly regretted and to whom he suggested that the Conference should express its sympathy) had informed him that she was conscious of the same difficulty in India. She had drawn his attention to a book entitled “ Social Hygiene To-day ”, by H. E. G a r l e . That work was well written and fair, but the information it contained was chiefly E uropean. It could not be of much use since it had no Eastern basis or background. Miss Shephard thought something similar was badly needed for the Far East. Mr. Jordan agreed that such a book was necessary. Perhaps the League of Nations could find a qualified person to write it. If a book were written by a man of the eminence of Doctor Wu Lien Teh, known throughout the world for his work on “ Plague ”, what a difference it would make in the East ! Perhaps the Conference — 45 — could adopt a recommendation stressing the importance of propaganda on the right lines, and once a specialist doctor with the necessary experience, preferably of more than one country in the Far East, was interested, the book which was so badly needed might be written.

The P r e s id e n t thought he was interpreting the wishes of the entire Conference by requesting the Secretariat to draft a letter of sympathy to Miss Shephard.

Mr. N orth (Hong-Kong) had little to add to the information contained in the answers of the Hong-Kong Government to the questionnaire, or to the memorandum paraphrased on page 39 of document Conf./C.T.F.E./Orient 3 already circulated to the members of the Conference. The former occupants of the so-called “ First Class Brothels ” — who were not primarily prostitutes any more than were the geisha of Japan — had disappeared and their place as public entertainers had been filled, if at all, by singing girls and cabaret dancing partners. In the district formerly occupied by brothels in the ordinary sense there had been a noticeable increase in street­ walkers and clandestine brothels. There seemed to be a tendency for the latter, under pressure from the police, to break up into establishments containing one or at most two prostitutes, but it was too early yet to speak with certainty on that point. Mr. North would indicate as briefly as possible the objections, as he saw them, to any brothel system and in particular to the system of registered or tolerated houses. Girls were not registered as prostitutes unless they were actually prostitutes, assuming that, as in Hong-Kong in the past, the main object of regulation was to protect those women from exploitation. If they did not in their application claim to be prostitutes already, steps would naturally be taken to remove them, say, to some refuge. In Hong-Kong, before the tolerated brothels were closed there were between 2,000 and 3,000 registered girls. The maximum admissible was fixed so that the total at any one time could not exceed, say, 3,000. Every year between 1,000 and 1,500 new entrants presented themselves for admission. Where did those girls come from ? The recognised fiction was that they came from brothels outside the colony. Mr. North considered that, in most cases, that statement was incorrect, and that the majority had been prepared and trained locally in private houses and were only produced for inspection when they were ready to answer questions in the manner desired of them. That fiction, if fiction it were, had to be accepted, otherwise the system would have been unworkable. Since the total was fixed, the admission of such a large number implied the departure of an equal number. Where did those girls go ? Some, no doubt, left to become concubines of favoured patrons, but even so a large number must have drifted out to practise prostitution either clandestinely in Hong-Kong or else abroad. Mr. North’s object was to indicate that the brothels in Hong-Kong did provide a market and a training-ground for girls who might not otherwise have become prostitutes and to suggest that the same process went on elsewhere. That argument against controlled prostitution implied two things. The first was that controlled prostitutes were allowed freedom of movement and could leave the brothel when they pleased, as was the case in Hong-Kong, and that it was impossible with so large and mobile a population to keep track of them afterwards. Other countries might not have the same problem but one would expect to find similar conditions existing in China and Macao. The other implication was that when brothels ceased to be controlled their place was not taken by clandestine brothels, which if ignored or unsuppressed were, in his view, even worse than controlled ones ; since, in addition to the evils of trafficking attached to any brothel system, the inmates were left entirely without that protection which was the strongest defence of the controlled system. Abolition of control must be followed by strong police action against clandestine brothels as well as by other more positive measures. This aspect of the problem was a most difficult one and he was greatly interested in the suggestions which had been and would be made for a solution.

M. Me y e r (Netherlands) gave an account of the abolition of licensed houses in the Netherlands Indies. He recalled that this system had been abolished in the Netherlands in 1911 for the following reasons : • It involved social degradation of women who were subject to a particular form of justice, and who were in general treated differently from the remainder of the population. It was unjust and unmoral to apply to women a system which placed them in a position of inferiority and in no way affected the men obtaining their services. Public opinion was indignant that the Government practically co-operated with the licensed houses, which had an evil influence on public morals. It had been considered the duty of the State to give a good example. Various circumstances favoured the action of the abolitionists. In the first place, the prostitutes disliked a system which placed them in the hands of the police, restricted their freedom, and deprived them of the social life of the rest of the population. Moreover, the women escaped more and more from the influence of the police, the number of brothels was everywhere declining, while houses of clandestine prostitution were being created. The position had been reached where only ten or twenty per cent of the total number of prostitutes were registered. The police were obliged to relax their strictness, and the system lost in effectiveness. M. Meyer then pointed out that the existence of licensed houses brought about an increase in he number of clients of the prostitutes. The brothels had the character of public establishments, were recognised by the State, and were more or less ordinary and normal institutions. Their c lents thought they were safe from the hygienic point of view, because they knew that the women — 46 — were subjected to regular inspection. Nevertheless, the number of registered women declined while clandestine prostitution increased, so that the idea which had predominated when the system of licensed houses was established led to the opposite effect. Criticism was also levelled at the legal basis of the functions entrusted to the police, who had full power over the prostitute and could officially register women suspected of engaging in prostitution. Mistakes and arbitrary action resulted from this system. In addition, the police were corrupted on account of their daily contact with these depraved women, etc. As soon as public opinion in the Netherlands observed that for legal, medical and, in particular, moral reasons, the system of licensed houses was to be condemned, the country endeavoured to abolish it. M. Meyer then quoted the remarks made in 1911 by Minister Ragout in the Netherlands Parliament, to the effect that it was not for the State but for religion, education and science to watch over the morals of the nation. In endeavouring to define the task of the State in this matter, M. Ragout had said that it was for those whose duty it was to maintain the morals of the nation to accomplish their task successfully. Since the conviction arose in the Netherlands as to the necessity of abolishing licensed houses, no reason could be found why that abolition should not also apply to the colonies, and the licensed houses in the Netherlands Indies had therefore been closed.

Dr. T ib e r g h ie n d e Mo u l in (Netherlands) informed the Conference of the experience, in respect of venereal disease, of the Royal Netherlands Indies Army, after the abolition of licensed houses. The development of the position in that respect was shown by two graphs (see Annex 3, B, page 80), which had been distributed to the Conference, one relating to European soldiers and the other to native soldiers. Abolition had been applied since 1911-1913. At that time, the treatment of syphilis was still very inadequate. Nevertheless, the syphilis graph as regards natives showed no appreciable change until 1914. Among the Europeans, on the other hand, the maximum was reached in 1912 and the curve fell rapidly until 1914, when it reached a figure below that of 1911. In 1921, personal prophylaxis had been introduced ; although that system was rational from the medical point of view, it had the disadvantage of being very complicated. As from 1931, a new and simpler method of prophylaxis had been applied, which had also been adopted by the navies of various countries. After the introduction of that procedure, venereal disease had shown a decrease, but, at the present time, there was a slight tendency to increase. Needless to say, the treatment of venereal disease had been carried out vigorously. In respect of syphilis, in particular, it had been found possible to use remedies of real value such as arsenobenzene and bismuth, which soon brought the disease to a non-infectious phase. In addition to those medical measures, propaganda was carried out with a view to persuading infected persons to undergo treatment without delay. The soldiers were reminded in monthly lectures of the value of continence and of the venereal danger. The advantages of marriage were also pointed out, since concubinage had been gradually abolished. In order to make the campaign against venereal disease as effective as possible, the men were subjected twice a month to a physical examination in order to detect, not only venereal disease, but any other infection, abnormality or malady from which they might be suffering. Any man infected with venereal disease was compelled to undergo treatment. The effect of these measures was shown in the graphs relating to gonorrhoea among the natives and to syphilis. The graph regarding gonorrhoea among Europeans would provide a formidable argument for the abolitionists, if it were only possible to explain the constant decline as compared with other graphs. The upward movement of the graphs relating to syphilis and gonorrhoea among the natives from 1914-1921 was possibly explained by the fact that many experts admitted that, in times of prosperity and in war-time, the increase in venereal disease was to be expected. Opinions regarding the effect of prosperity were, however, not unanimous. It was, nevertheless, a remarkable fact that, after 1921 (period of prosperity) — that was to say, after the introduction of effective prophylaxis, vigorous treatment, regular medical examinations, and propaganda in respect of morals — all the above-mentioned graphs showed a considerable drop, and, in most cases, declined below the figures of 1903. The percentages regarding soft chancre had never been taken into consideration up to the present, because the incidence of that disease in the same country and the same town was subject to very great fluctuations, the cause of which was unknown. In short, it must be admitted that while abolition had not, at the beginning, brought about a decrease in venereal disease, it had not caused an increase in such disease in the Netherlands Indies Army. It was necessary that abolition should be followed by medical, social and legislative measures, in order to bring about a decline in venereal disease.

Miss W oo dsm all (World Young Women’s Christian Association) said that the question of the abolition of licen sed houses was a matter of great interest to the women's associations, as several speakers had pointed out. In speaking in favour of abolition, she was expressing not only the opinion of those associations but also of numerous organisations of men and women in the West and in the East. Reference had been made to the work of Josephine Butler, but the time had now passed when the crusade was carried out by individuals. At the present time, it was a comforting spectacle to see idealism and common-sense in league to combat the evil. In — 47 — the past, it was thought that licensed houses were an unavoidable evil. The present Conference refuted that idea ; moreover, no one at present would endeavour to defend the idea of the inevitability of evil. Neither customs nor rites nor racial prejudice in favour of prostitution constituted insurmountable obstacles. This had been seen in India, when legislation against the system of devadasi had been introduced by the Madras Government. It had been pointed out that the abolition of licensed houses was not merely a legislative problem, but also an educational problem. It was true that the public must be educated, but it would be a mistake to think that legislation against Hcensed houses should wait until the public had been educated. Both legislative action must be taken and educational work carried on. Miss Woodsmall would not defend the view held by the women’s organisations by means of statistics, arguments and other means of discussion. She would merely say that their view was always based on the recognition of the rights of human personality. It could not be admitted that the system of regulation decreed by the State should place a seal of inferiority on women. The eyes of the world were fixed on the present Conference, which would mark a stage in the campaign for the abolition of a state of affairs which was revolting to the human conscience.

Miss G u n n in g (World Young Women’s Christian Association) did not know if she was really entitled to speak of the respective merits of the system of regulation and abolition, since her experience was confined to the latter system, which had been applied for more than twenty years in the Netherlands Indies. She would merely state that her work had brought her into contact with young people who had come to the towns to carry on their studies and subsequently to find a position. On entering college those young people came into a new world which was strongly influenced by western ideas and conceptions of personal liberty. They were submitting to a form of existence in which marriage was delayed and daily life was dominated by all-powerful custom. They would have to change their habits, some of which were excellent, for others which had no reality for them and possibly merely represented the product of a decadent civilisation. Pity must be felt for those living in a country where brothels were tolerated and formed part of the social customs, and were even under State control. How could those young people discover the new moral code which they required ? The recognition given by the State to a certain form of prostitution necessarily lowered the level of morals. Indeed, how was it possible that it should not influence the Government ofScials who had to deal with these houses as a factor which was necessary for public order ? How could it fail to influence the doctors who would be sometimes tempted to indicate an inadequate remedy for tormented youth, and how could it fail to influence the best of the young men who would be the future guides of the nation ? It was a perfectly true remark that it was not the Governments task to preach morality, but, on the other hand, they could not be openly in favour of an institution which undermined the main strength of mankind — that was to say, self-control. The brothel should not exist. Its disastrous effects on morals in Europe were well known. Its abolition could only lead to good results. The national requirements must certainly be respected, but the new spirit which was taking shape in the private organisations should be aimed at a better and purer life and be supported by the Governments.

The P r e s id e n t read a note from Miss Shephard (Association for Moral and Social Hygiene, India) who was undergoing treatment in hospital, of which the principal points were the following : Commercial prostitution was not a necessary evil since there was no necessary evil. It was a problem which should be considered from the legal, medical and administrative points of view, and also from that of the rehabilitation of the prostitutes. From the legislative point of view, prostitution had never been considered a crime, and it was therefore illogical and illegal to penalise one of the participants in this mutual act without dealing with the other. It was penalising the woman to enclose her in places reserved for vice, while the man who obtained her services was free to come and go as he wished ; he might be honoured by society and was frequently, in other respects, a man of good morals. From the medical point of view, the highest authorities had had to admit that the examination undergone in regulationist countries by prostitutes gave no guarantee whatever, and that moreover it did not include all the women. From the administrative point of view, the police authorities exercising their activities in parts of India where the brothel system was in force, desired that the system should be abolished. It had the disadvantage of increasing crime, of creating centres for the traffic in girls, and not in any way improving the conduct of a town. The police were always in danger of being corrupted. From the point of view of rehabilitation, the work of voluntary organisations or of the Government in favour of rehabilitation failed lamentably in countries where brothels existed. Every girl who was saved from the hands of traffickers could be easily replaced by another one in the brothels. Where was the solution to be found ? It was in the organisation of spare time, healthy recreation, parks, music ; in free and discreet medical treatment of all affected by disease, so that even the increase in the number of cases of venereal disease, after the closing of the brothels, would show that people were not concealing those diseases. The public must also be taught that creative effort was not only expressed in the physical sphere, but also in the intellectual sphere, in art, music, social work and in the spirit through religion. SEVENTH MEETING.

Held on Wednesday, February 10th, 1937, at 9 a.m.

President: J o n k h eer B a u d .

19. Possibility of abolishing Licensed or Tolerated Brothels in the East (Item III of the Agenda) : General Discussion (continuation).

Miss P e r k in s (World Young Women’s Christian Association) desired to speak on the part played by the private organisations in the abolition of licensed brothels in the International Settlement of Shanghai. The licensing of brothels came into effect there about 1905, and shortly afterwards the missionary organisations began to realise the harm done by that system in facilitating the work of the traffickers, since the licensed houses constitute a recognised market for prostitutes. By bringing that and other harmful effects to the attention of the Shanghai municipal council at several successive annual ratepayers' meetings, the council was induced in 1929 to appoint a commission to study the question. Its report was adopted and, in 1934, the last of the licensed brothels closed its doors. Prostitution, however, still occurred within the settlement, but the position of the traffickers had become difficult and those who were caught were sentenced in the courts of their own nationality. As the International Settlement was only one of three administrations in Shanghai, the situation had been very difficult on account of the different regulations in force in the Chinese and French territories. China was already working to abolish this practice and France had just announced her intention of gradually doing likewise, and this held good also for the French Concession in Shanghai. It therefore appeared that the way was now open for the three administrations concerned to make real progress against the traffic, in so far as it was aided by the presence of licensed brothels.

M. Ch e n (China) referring to Mr. Jordan's remarks at the previous meeting1 stated, for the information of the Conference, that a long article had recently appeared by Dr. Wu Lien Teh on venereal disease, which showed that he was interested in that subject. The possibility of abolishing licensed houses was a big problem and involved a consideration of the causes of prostitution. Those were usually (1) poverty, (2) ignorance. With regard to the second cause, he might state that out of 500 prostitutes in Peiping, only eleven could read and write, and only two had received any higher education. The study of 3,000 prostitutes at Tientsin had revealed that only 13 — that was to say 0.4 %—could read and write ; a large number, estimated at about 40 %, of the prostitutes were also found to be feeble-minded. With regard to the measures being taken by the Chinese authorities to combat both causes, Mr. Chen would refer to the statement made by the first Chinese delegate at the second meeting of the Conference.2 He would like to mention a country which was not represented at the Conference, but which had taken some remarkable steps against prostitution. He referred to the Union of Soviet Socialist Republics. Before the revolution, there had been more than 30,000 prostitutes in Moscow. The Soviet Government had abolished the brothels and established welfare homes in the towns. There were now only three Hcensed houses in Moscow. The system in Russia had three main objects. (1) education, (2) the provision of work and (3) the rehabilitation of the prostitute. The League document “ Abolition of Licensed Houses” 3 contained six exceUent resolutions, some of which—in particular, resolution V—referred to the three phases which he had mentioned. He wondered if the Conference should not confine itself to resolutions which had already been passed by the Committee on Traffic in Women and Children and the conclusions of the Commission of Enquiry.

Brigadier L o rd (Salvation Army) said the Salvation Army was a religious as well as a social organisation, and the problem was regarded from both those aspects. In order to assist the victims of prostitution, the Salvation Army was operating ninety-five women’s industrial homes and ninety-three maternity homes, and, during 1935, 25,322 women had been passed out of those homes as satisfactory. The passing of resolutions and even the translating of those resolutions into laws would do little good without an administration of such laws by an efficient authority, and that was only possible if backed up by an enlightened public opinion. The Salvation Arm y was in favour of the complete eradication of the brothel, whether Hcensed, tolerated or clandestine, because the brothel represented the commerciaHsation of human weaknesses for the benefit of third parties. If prostitution were essential, steps would be taken

1 See page 42. 2 See page 11. 3 Document C.221.M.88.1934.IV, pages 94 and 95 (see also document Conf./C.T.F.E./Orient 3, pages 37 to 39). - to see that the misguided girl or woman should get the benefit of her sacrifice for herself. If third party profits in commercialised vice were destroyed, much of the traffic would very rapidly cease. It was no argument to say that the brothel was the lesser of two evils. Brigadier Lord had lived in countries where various systems prevailed and he failed to see any advantage accruing from the State-regulated system that was in any way superior to the abolitionist system. Where the licensed and State-regulated brothel was an established institution, the casual street-walker and unlicensed brothel associated with cafés still existed. In spite of recent regulations on the subject in Japan, there were 23,300 waitresses working in 3,788 cafés in 1934 in Tokio alone. Since those cafés were now being regulated, it would appear that the most efficient system of State regulation and control had failed to prevent the development of another questionable form of amusement which had already called for police interference. Moreover, where State-regulated traffic existed, there was a properly protected market which, having created the demand for girls, insisted that that demand should be filled. That inevitably led to abuses of the system which allowed one person to dispose of the life of another. Although the licensed system had never existed in Malaya, tolerated houses had formerly existed in certain localities. Brigadier Lord referred to the enormous improvement in the position in Singapore since 1925, when he had first visited that city. No situation could have been as bad as that in Singapore in 1925 and, whatever unpleasant aftermath might remain in the way of street solicitation, the balance was certainly in favour of the present system. If the excellent ordinances that had been enacted in the Straits Settlements could be continually and equally well enforced, the present situation could speedily be further improved. That, however, required a better informed body of public opinion which would support the efforts of the Government. He had been very glad that no single delegation had done other than state that the ideal position was the complete suppression of the brothel and, even in places where the State-regulated system was most entrenched, every tendency to move from that position had been reported at the Conference as a sign of progress in the right direction. He would not go into the question whether it was wiser to suppress the brothel immediately or to arrive at the same result by gradual steps. He would point out that the Salvation Army was helping the various Governments in three . different ways :

1. Using every possible means of preventing girls, either willingly or unconsciously, starting a life of prostitution. Preventive work. 2. Providing a refuge for any girl who, having started on a life of prostitution, wishes to change her life. Rescue work. 3. Educating public opinion, especially the adolescents, so that their normal family life becomes their ideal and all extra-marital sex-relationship is looked upon as abnormal. General young people’s education.

In conclusion, Brigadier Lord would say that, whatever system existed, the purpose of the Salvation Army would always be to render all the aid it could to the victims of that system. He would add that the Governments which subsidised that form of social activity, such as the Netherlands Indies, the Straits Settlements, Hong-Kong and Japan, as well as many others, were showing in a very practical way their desire to eradicate a social evil of no small proportions.

Dr. W il l e (Salvation Army) said the evil which had to be combated was so great that it could only be conquered by powerful and rational methods. An information bureau would of course be useful ; but it was necessary to concentrate attention on the root of the evil. What was the root of the white-slave traffic? It was the brothels. So long as the brothels existed, there must be a constant fight for their inmates. The traffickers were a part of the system, and those who licensed or tolerated the brothels were to some extent responsible for the traffickers. The traffickers were clever and, when one way had been closed to them, would find another. The only rational way to fight the evil was to close the brothels. This was possible, since it had already been done. Several delegates, including those of the Netherlands, had spoken of very successful action in that direction. When Dr. Wille had first arrived in Java in 1907, the brothel system had been in force everywhere. In Semarang, there was a whole street full of Javanese brothels and in another street a big Chinese brothel. In 1911, Governor-General Idenburg had closed all brothels and sent all the inhabitants back to their homes. There had been no harmful effect. As regards medical control over venereal diseases, he could state, as a doctor, that experience had shown that the brothels were not necessary for that purpose. In Copenhagen, for instance, where the brothel system had long ago been abolished, but where thorough treatment of venereal disease had been made easy and was given free of charge, the result was as follows : In the large communal hospital, about forty years previously, two departments had been required for those diseases, and there had been numerous cases of syphilis, but at present there were few cases of that disease. The reasons were :

(1) That the patients had undergone treatment in time, and (2) That they had been treated with the new remedy, neosalvarsan. — 50 — It was not that the disease had been fully cured, for the patients often stopped treatment too early ; but the treatment was usually sufficient to remove the possibility of infection.

M. T ib e r g h ie n d e Mo u l in (Netherlands) said that, at the previous meeting,1 he had omitted to speak of the upward trend of venereal disease during the period from 1914 to 1921. Some experts were of opinion that, in time of war or prosperity, an increase in venereal disease was to be expected. There were, however, differences of opinion on the point.

The upward, trend had been observed in a number of centres of treatment of venereal disease without any explanation being furnished. It was in any case remarkable that all the graphs showed a sudden drop after 1921 — that was to say, after the creation of effective prophylaxis, energetic treatment, moral education, etc. The graph for soft chancre had not been taken into consideration because the incidence of that disease in the same country and in the same town was subject to great fluctuations, the character of which was still unknown.

Mr. J o r d a n (Straits Settlements and Federated Malay States), at the request of the President, gave an account of the methods by which the abolition of the brothels had been carried out in the territories he represented. He said that, once the Government had decided to abolish the known or registered brothels (there had never been any licensed brothels), the first step had been to stop the sources of supply. In March 1927, the Secretary for Chinese Affairs at Hong-Kong, whose office examined all emigrant women from South China, had been informed that no further prostitutes would be received and he had been requested to notify the lodging-house keepers who arranged for their passages.

At the same time, instructions were given that no woman who had been a prostitute in Malaya for less than six months would be allowed to transfer to another brothel. As the prostitutes frequently changed brothels, that measure had led to a reduction in the number of inmates. The keepers of known brothels were warned, in March 1927, that the Government had entered upon the policy of suppression.

At the end of 1926, there were 266 known brothels with 2,211 inmates in the Straits Settlements. At the end of June 1929, as a result of the above measure, there were 62 brothels with 519 prostitutes.

During the three year period 1927-1929, the officers responsible closed down a brothel as soon as the number of inmates fell below the figure at which the brothel-keeper had said she could carry on business. If the number came near that minimum figure the keepers were advised to combine two brothels.

The inmates were dealt with in various ways. Some became the wives of favoured clients. All were offered Government assistance by admission to the Po Leung Kuk or they were repatriated or helped to find employment. A large proportion became clandestine prostitutes. The attitude of the women in whose interest the measures were taken was not appreciative. They displayed sullen acquiescence in the ways of an interfering Government and did not understand why they were compelled to give up their trade.

During the year following the closing of the brothels, great police activity was necessary in prosecuting clandestine brothels and in deporting convicted brothel-keepers. Out of 202 prosecutions, there were 147 convictions, 9 cases withdrawn and 5 acquittals ; in 5 cases, the accused absconded and forfeited $2,500 in bail. The remaining 35 cases were dealt with under the Banishment Ordinance. Of the 147 convicted persons, 60 were deported on completion of their sentences.

The position would have been easier if the Salvation Army had been operating at that time in Singapore. The only home to which girls could be sent was the Po Leung Kuk, which was regarded with suspicion by the prostitutes. The homes of the Po Leung Kuk were sometimes Government institutions and sometimes private. Two years previously the Salvation Army had opened a refuge (called the Women’s Industrial Home) for women who could not be ad m itted to the Po Leung Kuk—that was to say, women over eighteen years of age.

To sum up, the steps taken were as follows :

(1) An announcement of policy to all those with vested interests, made in March 1927 —that was to say, nearly five years before the definite closing of the brothels ; (2) The stoppage of the supply as near the source as possible and the refusal to permit transfers from one brothel to another, together with provision for closing the brothels when the number of inmates fell below a certain minimum ; (3) Energetic measures to provide for the girls when the brothels were closed ; (4) Strong police action against the evils which intervened on the closing of the brothels.

1 See page 46. — 5 i — M. M eyer (Netherlands) said the system of regulated prostitution had been introduced in the Netherlands Indies in 1852 and had been abolished in 1913. In the first decade of the twentieth century, two events had taken place whichhad had a determining influence on that question—namely : (1) The conclusion of the Paris Agreement of 1904 ; (2) The introduction of the so-called “ Public Morality Acts ” in the Netherlands in 1910- When the Netherlands Government had signed the Paris Agreement of 1904 it had done so also for the Netherlands Indies. Consequently, it had agreed to appoint an authority in the Netherlands Indies, which would be charged with the “ co-ordination of all information relative to the procuring of women or girls for immoral purposes abroad ". The Public Prosecutor at the Court of Justice at Batavia had been appointed to fill this post in August 1907 (Official Gazette, 1907, No. 340). Following the example of the Netherlands, the Public Morality Acts had been introduced in the Netherlands Indies on September ist, 1913. This step had been preceded by the promulgation, on November 29th, 1910 (Official Gazette, 7332), of an ordinance to the effect that, from March ist, 1911, the medical examination of prostitutes would no longer be made by the governmental authorities and that the so-called “ institutions for sick prostitutes ” would be closed down. That measure, together with the introduction of thePublic Morality Acts, had p u t an end to the system of regulation. The Public Morality Acts provided penalties for various offences against morals, including procuration, brothel-keeping and traffic in women. When the system of regulation had been abolished, the foreign prostitutes concerned had been sent back to their own country by the competent consular authorities. No special measures had been taken against native women ; they had returned to those sections of the population to which they belonged. Nevertheless, it was only in 1915, at the time when the Government Bureau had been founded, that it had been possible to take up effectively the fight against the traffic in women and prostitution generally. Instead of there being only one official, who performed that task as a secondary duty, a special office had then been created for the purpose. In 1913, the Paris Convention of May 4th, 1910, concerning the traffic in women became applicable in the Netherlands Indies. In 1918, regulations were introduced concerning the punishment of offences committed by minors, and providing for their admission to special institutions. On the one hand, existing private institutions were used for that purpose, and on the other, State reformatories were established. In that way,-it was possible to take measures in regard to dangerous or unprotected young persons. Finally, in 1919, special regulations were introduced in regard to young immigrants, about which information had already been given to the Conference during the discussion of the second point on the agenda. All these factors, in particular the introduction of the Public Morality Acts, the special measures in regard to minors, the admission of young offenders to certain institutions, the regulations in respect of young immigrants, made it possible, with the Government Bureau as the central point of activity, to launch, from several sides at once, an energetic campaign against the traffic in women and children and against the system of brothels. In 1920, M. van Walsem, Inspector of the Government Bureau, was able to state that direct traffic in women from the Netherlands Indies to foreign countries was practically non-existent. He had made an enquiry at Singapore into the number of women of Netherlands Indian origin in the brothels of that town, from which it appeared that there were only ten, divided between three of the brothels. In addition to those public prostitutes, however, there were far more women of Netherlands Indian origin who had embarked upon a life of clandestine prostitution. M. van Walsem had noted the same phenomenon in other Eastern countries which he had visited. It had also appeared that the traffic in women from China to the Netherlands Indies had decreased. That was probably due to the following causes : In the first place, the Netherlands Indian Government no longer officially permitted brothels. Secondly, the Immigration Service had co-operated most energetically, as was indicated, for instance, by the regulations in regard to young immigrants. Thirdly, co-operation with the civil and judicial authorities had been established. Fourthly and lastly, public opinion in the Netherlands Indies had begun to take more interest in these problems since, after the abolition of the system of regulation, prostitution was no longer regarded as a normal phenomenon from the moral point of view. About 1910, the system of regulation was considered, in the Netherlands Indies, to be an evil and was condemned by public opinion, which felt that it should be abolished. Moral standards stood on a different level from sociological, hygienic or other considerations : they were regarded by public opinion as absolute and admitted of no alternative. The moral principle, therefore, was the only one to be applied ; in its essence and in its nature it excluded all hesitation ; it was categorical and imperative. For that reason the system of licensed houses also had been abolished in the Netherlands Indies in 1911, although in that country, which was still somewhat primitive, it was perhaps not entirely possible to foresee all the consequences of that measure and to create conditions which were in all respects favourable to its application.

M. Sa m paig (Macao) said he had listened with great interest to the statements by the representatives of the three abolitionist countries. While the Government of Macao considered — 52 — that abolition was the ideal system of the future, it considered that a system of regulation was necessary at present for reasons of colonial policy. In order to justify that attitude, M. Sampaio gave the following figures which showed the results obtained at Macao by the application of the system of regulation : In 1933, there were 62 brothels with 650 women ; in 1934, 61 brothels with 630 women ; in 1935, 58 brothels with 600 women, and, in 1936, 58 brothels with 580 women. Those figures showed the efforts made by the authorities to reduce prostitution. The number of brothels had decreased, together with the number of prostitutes, at a time when the brothels were being closed at Hong-Kong. As regards the expenditure incurred by the Government for prophylactic and medical treatment for prostitutes, the figures were as follows :

Year Women treated Cost in dollars 1 9 3 2 ...... 2 3 5 7,065.63 1933 ...... 213 6,274.14 1934 ...... 215 4 ,055.67 1 9 3 5 ...... 124 3 ,918.65 1936 ...... 142 4,692.89

Total 26,006.98

The above table gave clear indications as to the medical supervision of prostitutes instituted by the Government, and the measures taken by the latter to deal with venereal disease. As regards souteneurs, there had been three cases in 1933, seven in 1934, one only in 1935, and eight in 1936—that was to say, nineteen cases in four years ; all the culprits had been convicted and deported. According to Article 15 of the regulations to which M. Sampaio had already referred, brothels were only permitted in a particular area. A Decree of October 22nd, 1910, promulgated in Portugal and put into force in Macao in May 1911, strictly forbade the printing, sale, display and distribution of obscene publications, and also their importation from abroad. The Government was carefully studying methods of suppressing the brothels, but was desirous of acting with caution in order not to aggravate the situation instead of improving it.

Mr. N orth (Hong-Kong) said the policy in Hong-Kong had been almost exactly the same as in Malaya. The only difference was that the authorities had not been in a position to check immigration. For that purpose, Hong-Kong was a part of China, so that there had never been any open traffic between Hong-Kong and China as there had been between Hong-Kong and Malaya. When the brothels had been closed the prostitutes who remained were summoned by the Chinese Secretary and interviewed by an official and by a representative of the Salvation Army. The result had been negative, and the prostitutes had expressed no desire to enter any institution but preferred to return to their own country.

Professor L a b r o u q u è r e (France) thanked the delegates of the abolitionist countries who, during the morning, had given the information for which he had asked concerning the methods adopted by those countries for bringing about abolition. Indo-China could naturally not undertake any definite obligation in the m atter, b u t an effort was being made gradually to suppress the licensed houses. For that purpose, the Government would be glad of any information which could be furnished by the delegations of the States that had already adopted abolition ; the particulars supplied by the delegates of the Malay States and Hong-Kong were therefore of particular value. The delegates of China having referred to the position in their country from the point of view of the abolition of licensed houses, Professor Labrouquère would give some information as to the situation in the French Concession of Shanghai both from the point of view of regulation and from that of the possibility of abolition. The enquiry carried out in 1932 showed that a very large number of clandestine prostitutes in the Concession were engaged in soliciting through friends. As a result of measures taken in 1932, 1933 and 1934, very strict control of prostitution had been achieved. The prostitutes were partly Chinese, partly European. In 1932, there had been n o Chinese licensed houses, and the number had gradually been reduced. The decrease was due, in the first place, to the severity of the depression and, secondly, to the strict application of the regulations regarding prostitution. There were now only 51 Chinese brothels, with a total of 390 registered inmates. In 1935 alone, 18 brothels had been closed, so that abolition was being carried out rapidly. The prostitutes were examined twice a month, 7,738 examinations having been made in 1935- ^ might be stated that the sanitary control was working satisfactorily. During the same year, prophylactic cubicles had been created in the brothels, and patrols had been organised to prevent soliciting by clandestine prostitutes in the neighbourhood of the brothels. Since November 28th, 1934, there had been no brothels containing European prostitutes. The few attempts which had been made to open clandestine establishments had been thwarted and severely punished. Nevertheless, the number of unregistered prostitutes still amounted to about 500 out of a total population of 6,000 European women. The action of the police was directed against individual prostitutes ; they were not, however, always subject to the law, since they did not in every case solicit in the streets. Police action was also directed against disguised houses of prostitution (these existed in the form of massage establishments, tea rooms, etc.). A — 53 — number of these houses had been closed in 1935 and 1936, but it was sometimes difficult to ascertain whether they were really engaged in prostitution or not. All suspected massage establishments had been closed, and none of them had been reopened in 1935 and 1936. Those still remaining were in charge of professionally qualified persons who had proved to be such on enquiry. Women who practised prostitution occasionally were to be found in particular amongst dancing-girls and waitresses in restaurants and cafés.

Professor Co r r e ia (Portuguese India) said that the most important causes of prostitution included those of a traditional or religious nature ; there were also economic causes, while a third category was due to teratology. Lastly, other causes were connected with social environment. Abolitionism, which was a very fine aspiration of the human soul, could not be put into practice everywhere with the same facility as in certain countries which had long been prepared for it. That system demanded a number of sanitary and social measures, the most important of which were compulsory warning, the compulsory search for germ-carriers, the infliction of penalties on diseased persons who infected others with their disease, compulsory treatment, pre-nuptial certificates, the preservation of the individual, a perfect sanitary organisation, the social protection of women, etc. Compulsory warning was intended to make the party concerned realise that his disease was infectious and to teach him the responsibilities which that fact involved for him from the moral, sanitary, penal and civil points of view. The compulsory declaration of the disease was of great importance for the success of the abolitionist system. The compulsory search for germ-carriers, conducted by the health authority responsible for the party concerned, even apart from any desire expressed by the victim, aimed at imposing the penalties provided for in the civil and penal legislation if any person transmitted the disease, and in particular at providing for compulsory treatment. The penalties inflicted on persons transmitting their disease would make the public realise that it was a crime punishable by law to transmit syphilis. From the civil point of view, the law must make it possible to claim damages against persons transmitting venereal disease. Such persons must, moreover, be compelled to undergo treatment, since it was not permissible that they should be free to have sexual relations while the disease was in the infectious stage. The pre-nuptial certificate was an indispensable supplement of anti-venereal prophylaxis in the abolitionist system. Moreover, the individual must be preserved by the various prophylactic, mechanical or chemical means that were available. Lastly, in all human communities and groups, the health organisation must be as perfect as possible in order that all patients may be able to receive treatm ent free of charge in its anti-venereal dispensaries. Apart from the actual technical and sanitary aspect of abolition measures, it was necessary to raise the moral level of young people, to make clear to all the dangers involved by immoral conduct, to give instruction with all necessary caution as to the means at the disposal of the individual for protection against venereal disease, and to cause those who had, nevertheless, become infected to undergo treatment from the outset until they were cured. It was necessary to constitute a complete anti-venereal defence, to prevent quacks from influencing the ignorant and credulous, to decrease unhealthy temptations and to increase the possibilities of healthy recreation, to combat solicitation, procuring and the incitement to immoral conduct. Legal measures must be taken for the compulsory detection of the carriers of infection. Diseased persons must be compelled to undergo treatment, and marriage must be protected by the institution of the pre-nuptial certificate and by the prohibition of marriage for diseased persons. These were the measures on which the success of a policy of abolitionism depended. As regarded Portuguese India, social protection was granted to native women and children and, though regulated prostitution still existed on account of obligations of colonial policy, international traffic was unknown. Moreover, the bayaderes could no longer be initiated into prostitution, and obscene publications were prohibited. In reality, the brothels in Portuguese India did not cause any social inconvenience. They were, moreover, very few in number and their disappearance was really desired by everybody.

M. Su n g (China) proposed, in order to give definite form to the various suggestions submitted during the Conference, that a Sub-Committee should be requested to consider the six resolutions adopted by the League Committee on Traffic in Women and Children (document C.221.M.88. I934-IV), and thus to ascertain how far the present Conference could give effect to them.

Prince Sak o l V a r a v a r n (Siam) thought the Conference should avoid any discussion on the controversial subject of venereal disease. In Siam, the experience of public health work in respect of these diseases, which had been carried on for four or five years, had taught the authorities a good many things. They had learned that venereal disease was a very special question which really concerned all classes of society and all ages of human life, and that it was not restricted either to adults or to prostitutes. The Siamese authorities had also found that there was no reason to link up moral ideas with the question of venereal disease, but that it should be considered purely from an objective point of view. Indeed, were there not innocent children who had been mfected by their parents ? In Siam, fifty per cent of the venereal cases examined were prostitutes, while the remainder were people who had certainly nothing to do with prostitution. It had been suggested to-day flat the authorities should take rapid action, but it was well to remember what Kipling had said in one of his poems—namely, that the East should not be hurried. The important thing was or everybody to agree that abolition was a desirable aim and that propaganda must be carried °n towards th at aim. — 54 —

The P r e s id e n t , after recalling the suggestions submitted during the morning by Mr. Jordan, M. Chen, M. Sung, Brigadier Lord and Prince Sakol Varavam, said he was under the impression that the following draft resolution submitted by the Siamese delegate covered all the previous suggestions : “ The Conference, “ Recalling the resolutions concerning the abolition of licensed or tolerated houses adopted by the Traffic in Women and Children Committee of the League of Nations in 1934, and, “ Considering that the Assembly when adopting the report of the Fifth Committee in 1934, invited members to give their earnest consideration to the resolutions of the Traffic in Women and Children Committee : “ Declares itself unanimously in favour of abolition, and, in order to attain this desirable end, recommends that an educational campaign be undertaken in co-operation with the League of Nations in all countries in which brothels still exist.”

Mrs. Mu k e r j e e (India), in supporting the draft resolution submitted by the Siamese delegate, said that, in India, as in China, women had now begun to realise the necessity of helping in the problem of traffic in women and children. Various women’s organisations were trying to create a public opinion and to urge the- authorities to pass more stringent measures so that no brothels of any kind might exist. In that connection, she read the following resolutions passed at the last session of the All-India Women’s Conference at Ahmedabad referring to this question : " (a) This Conference requests the authorities concerned to take more rigid steps towards the prevention of traffic in women and children, and urges Governments and the public to make immediate provision for Rescue Homes, where such do not exist.”

‘‘ (b) This Conference expresses its emphatic protest against the practice of opening brothels in Sind and elsewhere during M ela’s (fairs) as these have a degrading effect on the morals of the people, and urges the‘authorities concerned to take immediate steps to suppress them.”

The resolutions gave an idea of the widespread demand for the abolition of recognised brothels, and indicated the interest taken by the women of India in this question, and also the necessity felt to do some practical work to solve the problem. To some extent, this had been achieved by distributing literature, holding meetings to create public opinion, starting rescue homes, and approaching the authorities to take other effective measures. The All-India Women’s Conference fully represented Indian women. At the last annual session about 200 delegates and visitors had attended from its constituencies and sub-constituencies from all parts of India, and the local attendance was as many as 1,000 women daily. The All-India Women’s Conference had sent delegates to the last International Women’s Conference at Istanbul. Women all over the world were uniting to help in solving this problem, so that effective measures might be taken by the authorities to combat the traffic in order to try to save the poor, unfortunate victims.

M. Ch e n (China) thought the draft resolution only stressed one aspect of the problem— namely, the necessity of education — and that reference should also be made to the treatment of venereal disease and the rehabilitation of prostitutes. The Chinese delegation would be prepared to endorse it if it were supplemented in this manner.

Prince S a k o l V a r a v a r n (Siam) warned the Conference against the confusion in ideas which might result from a resolution entering into excessive detail.

Mr. J o r d a n (Straits Settlements and Federated Malay States) accepted the draft resolution proposed by the Siamese delegate, while requesting that the last few lines of the English text should be redrafted in order not to give the impression that the Conference thought there were countries in which houses of prostitution had entirely disappeared.

Prince S a k o l V a r a v a r n (Siam) accepted the change suggested b y Mr. Jordan.

Professor L a b r o u q u è r e (France) said the French Government was in favour of abolition, though with some reservations. He therefore proposed the following text for the last paragraph of the resolution : " The Conference . . . declares itself unanimously in favour of abolition as an ideal to be attained and recommends . . . ” In that way, the Conference would indicate that abolition was a desirable state of affairs which would be gradually realised. He thought, further, that the Chinese delegate was right in stating that the draft resolution only brought out one aspect of the problem — namely, the necessity for education. M. Labrouquère proposed to recommend, in the last paragraph, that the social environment should be prepared for abolition under the auspices of the League of Nations in countries where brothels still existed. The text which he had in view would mean that the social environment must be prepared from the medical and economic point of view. That preparation would take place, as far as French In do- — 55 China was concerned, thanks to the influence of the French authorities and the League of Nations. It would be carried out, for instance, in two or three years, after which the Governor-General would probably consider that the country was ripe for abolition.

M. S a m paio (Macao) said the Portuguese delegation agreed with Professor Labrouquère’s remarks. His delegation had already had occasion to state that the Portuguese Government was seriously considering the possibility of abolishing the brothels, but that it could not assume any obligation going counter to the laws in force in its colonies.

The P r e s id e n t proposed that the draft resolution submitted by Prince Varavarn and the observations on the subject should be referred to the Sub-Committee. The President’s proposal was adopted.

EIGHTH MEETING.

Held on Wednesday, February 10th, 1937, at 5.30 p.m.

President: Jonkheer B a u d .

20. Closer Collaboration between Police and Other Authorities and Private Organisations in the East (Item IV of the Agenda) : General Discussion.

Dr. S lo tem a k er d e B r u in e (International Missionary Council) said the organisation which he represented was very glad that this point had been placed on the agenda. The importance of the Conference did not so much consist in taking decisions as in providing an opportunity to exchange opinions and experiences and to influence public opinion by the mere fact of meeting and formulating recommendations. This was especially true as regards the contribution which the private organisations could make. On the other hand, the special task of the Governments was to adopt a general policy, to take measures of police work and immigration control and to see that they were effectively carried out. There was a large field of activity for private organisations in regard to the subject with which the Conference was dealing. The Commission of Enquiry had stressed that fact in its report.1 As one of the tasks of the private organisations, the Commission had referred to the inspiration and moral support of the Governments and assistance to the victims of the traffic. He would add one point which was of no less importance—namely, the influence of public opinion. It was especially to this matter that the missions and Christian Churches wished to give attention. Legislation and the carrying out of measures taken by the authorities should be backed by public opinion. It might even be said that the Governments should not go beyond the requirements of public opinion. In any case, legislation and public opinion should always go hand in hand. The task of the missions was not only important because it covered a field which the Government could not touch, but also because the subject of the present Conference had a moral as well as a social, hygienic and economic aspect. In fact, the moral aspect was the most fundamental one. The missions were convinced that moral questions could only be properly handled on the basis of religion and of the conviction of an individual or group. Education, the school and the Church must take the lead. The crucial point was the conception of men and women and of life in general. The Christian Church stood for a fundamental revaluation of woman, of the family and of the relations between man and woman. This could not be furthered by Governments nor was it a matter for compulsory treatment or even for argument. It was a question of conviction. The International Missionary Council was convinced that the Government measures and the activity of the League of Nations were absolutely necessary and could do much good, but the essential point was to rouse the spirit of the people. In Eastern countries, with their huge population, the missions and the Christian Churches were willing to do their part. They appealed to the League of Nations and the Governments to continue to accept them as collaborators. The churches and missions tried to build up communities in which prostitution and everything con nected with it would cease to exist. These groups had to fight not only their own ancient customs and opinions but also new ideas imported from the West. These communities were growing and must be protected and strengthened until they were strong enough to stand alone. He would welcome a recommendation by the Conference that co-operation with private agencies was not only desirable but necessary. The concrete form and method of co-operation between Governments and the agencies concerned should be found by cordial and earnest conversations in every country.

Miss W o o dsm all (World Young Women’s Christian Association) wished to associate herself with Dr. Slotemaker de Brume’s remarks in regard to the relationship between private and official agencies.

1 Document C.849.M.393.1932.IV, pages 96 to 98. She was glad to have the opportunity of expressing the desire of the World Young Women's Christian Association to co-operate in every way possible with the various official agencies promoting moral and social welfare. The World Young Women's Christian Association had followed very closely the work of the Social Section of the League Secretariat since its inception, and had been especially interested in the preparation of the present Conference. It was increasingly conscious of the creative and constructive part it had to play, together with other private organisations in the forming of an enlightened public opinion, thus contributing to the effectiveness of official efforts on behalf of public welfare. The fact that a number of international organisations had located their headquarters at Geneva in recent years had greatly increased the effectiveness of their co-operation with the international organisations of the League and the International Labour Office. This had been true of the World Young Women's Christian Association, as the transfer of its headquarters from London to Geneva in 1930 had made possible the development of closer contact with the League and the International Labour Office. Its relationship with these two international bodies had followed two main lines. First, it sought, by daily contact with the League, to keep itself informed of the League programme and of international aspects of the social and moral problem. Such information and counsel was shared constantly with the national headquarters of the Young Women’s Christian Association and with its representatives in the fifty or more countries of the world movement. This constituted the basis for the constant educational programme which was the major concern of the Association. Thus, the efforts of the Young Women’s Christian Associations in different countries was co-ordinated and kept in harmony with international policies and action. Another phase of the relationship of the World Young Women’s Christian Association to international social problems was the constant flow of information to the Geneva headquarters, which were thus in a position to furnish to the League information from the different countries. Because of the close personal contact of the Association with the life of women in various countries, the information received had a distinctive value, since it was not available through official channels. Thus the World Young Women’s Christian Association at Geneva endeavoured constantly to serve as a channel of interpretation in the international field of social and moral welfare. In addition to this two-fold function as a receiving and distributing instrument to and from the different Young Women’s Christian Associations in the East and West and the League of Nations, the World Young Women's Christian Association was conscious of another phase of its international responsibility, apart from its function of linking up the different movements with official international organisations—namely, that it had to speak for the organisation as a whole on certain great world problems. The voice of world movements could not be silent on questions which so vitally affected human welfare. Hence the World Young Women's Christian Association and other world organisations felt impelled to give expression to the collective opinion of their movements throughout the world. In connection with the subject of the relationship of private and official organisations, Miss Woodsmall would call attention to the close co-ordination of the various international organisations among themselves during the post-war period, which had made possible more effective collaboration with the League and Labour Office authorities. There were, for example, the major Women’s International Organisations, and closely co-operating with them a Liaison Committee, pooling their information and resources. Another illustration was the fact that the major International Christian Organisations, the World Young Women’s and Young Men's Christian Associations and the Students’ Federation were in constant contact and working as a unit. This drawing together of the voluntary organisation would, she was sure, make much more effective their participation in solving international problems of social welfare. In this era of rapidly developing international relationship, both official and voluntary agencies were all alike seeking to find ways and means of building up a new world community on the basis of a new moral order. All shared in a common task. It was because of this that the World Young Women’s Christian Association had welcomed the opportunity of being represented at the Conference in the belief that, through such contact, constructive lines for future action in the Far Eastern Area might be developed to which that Association might make its contribution.

Mile. M a l t h e said she did not represent her country but was present at the Conference in a private capacity as one of the members of the former Commission of Enquiry into Traffic in Women and Children in the East. She knew how much work lay behind the present Conference, as she had followed it when representing private organisations at the Conference on Traffic in Women at Berlin in 1933, the Conferences in Paris and London in 1934 and the Conferences at Travancore and Calcutta in 1935. In following the course of events since the Commission of Enquiry carried out its work in 1931, she had been astonished at the great change which had taken place in various countries. She was interested to observe in the present Conference the great part played by women in the East, and she was convinced that the solution of the problem lay with the women themselves. The Conference had shown that the world was moving so quickly that the report of the Commission of Enquiry, which was five years old, was no longer quite up to date. She therefore agreed with one of the delegates who had expressed the view to her that such Conferences should be held more frequently. The Conference had also shown up the weakness in the old structure. The parties to the Conference bad a certain responsibility towards each other to correct this — 57 — weakness. They formed, as it were, a chain, which was as strong as its weakest link, and it was therefore the duty of the stronger to help the weaker. She would like to suggest that similar Conferences should be held every three years. She would also propose that the results of the present Conference should be communicated officially to the Conference of private organisations which was to meet next year in the East.

Miss S t e w a r t (Salvation Army) noted that all the delegations placed education first, and it was with particular pleasure that she observed that, in some countries, girls received sexual instruction in the secondary schools. That instruction would be very beneficial for girls going in for teaching or social work, but prostitutes were obviously not recruited from that class. Under those circumstances, how could the recruitment be checked ? The Government could do much by legislation, and the Salvation Army was entirely in favour of the policy of abolition and was, in general, opposed to any form of commercialised vice. It was also in favour of the campaign against obscene publications which were, by the way, more dangerous for young men than for girls. It hoped that the countries which gave sexual education to girls would also give such education to boys. The best method of combating prostitution was by means of social workers. Their first duty was to gain the confidence of the girls, and this was no easy matter. They must then retain their attention and inculcate a sense of moral responsibility and of the value of the human soul. This was essentially work by women for other women, and it must be carried on until suitable education had penetrated even to the lowest classes of the population. The social workers must have a home to which they could bring the girls whom they had persuaded to give up an unhealthy life ; in most countries, this was a question of finance. Miss Stewart nevertheless thought that, in time, the expenditure incurred under this heading would be remunerative. She then gave some examples of the work of the Salvation Army in favour of potential young Chinese victims of the traffickers at Batavia, Soerabaya, Semarang, Bandoeng, etc. The girls thus rescued from the hands of the traffickers had become excellent wives and mothers. There was no doubt that the money spent by the Salvation Army in this way had not been wasted. Free dispensaries were also an excellent means, not only of treating sick women, but also of enlightening them. This work was carried out individually in the Salvation Army dispensaries. There were thirteen such dispensaries in the Netherlands Indies, seven of which were under the women's social department. During the last six months, these seven establishments had treated 16,008 men, 13,350 women and 31,168 children. It was not known what proportion of this total was represented by venereal disease. One means at the disposal of the Government for improving the situation would be to simplify the marriage laws and to bring them into line with the present position of women. Co-operation between the Government of the Netherlands Indies and the Salvation Army was most cordial. Miss Stewart had had very special possibilities of realising this during the seven years when she had been in charge of the women’s and children’s hospital at Soerabaya. There was similar co-operation between the Government of Hong-Kong and the Salvation Army. In conclusion, Miss Stewart pointed out that the Salvation Army had always found the authorities of Eastern countries prepared to co-operate with it, and she gave some examples of such co-operation at Madras, in Java and at Hong-Kong.

Dr. L ekkerkerker (Association " Ati Soetji ”) said that the Association " Ati Soetji ” had been founded in 1914 on the model of the Po Leung Kuk Society of Singapore, as a result of the international treaties which had been concluded on traffic in women and children. Its object was to prevent young Chinese women from falling into immoral conduct. For that purpose, the Association “ Ati Soetji ” had founded a home for girls at Batavia and, later, a home for young men in the same town. The girls entering the home were, in some cases, young prostitutes and, in other cases, merely victims of immoral acts ; sometimes they were Chinese girls who had been found in a state of vagrancy or who were daughters of prostitutes. The work of the Association “ Ati Soetji ” was thus partly preventive and partly curative. These girls, most of whom could not be sent back to their own country since they had no relations, received either school education or domestic instruction. When they were capable of earning their living, the Association found employment for them and, as they were very good at household work, the demand greatly exceeded the supply. Most of them married, and the Association took care that the future husband possessed all the necessary qualities of respectability. In general, the marriages were happy. Girls who found employment were granted the immigration permit free of charge ; this proved that they were regarded as desirable members of society. Nine-tenths of the girls proved worthy of the care taken of them ; this was an extremely favourable percentage, since an entirely satisfactory result could not be expected.

Miss P e r k in s (World Young Women’s Christian Association), in explaining the organisation started by the women’s associations at Shanghai, wished to show how those associations were able to co-operate with the authorities and how a society with sections in numerous centres of a vast territory could effectively protect women and girls against the traffic. The Joint Committee of Women’s Organisation sat Shanghai comprised seventeen organisations seventeen different nationalities. The Committee had been organised, in 1923, by five associations desiring the promulgation of a law on child labour. That effort had failed, but the Joint Committee, instead of being discouraged, had persevered and widened its sphere of action. - 5 8 - The object of the Joint Committee was to use international friendship and co-operation in order to make Shanghai a town in which life would be better, especially for women and children Part of its work was carried out independently of the Government authorities, but some questions, such as education, municipal health, dwellings, etc., called for co-operation between the various departments of the Chinese Government of the town, the council of the International Settlement and the authorities of the French Concession. The Joint Committee had been requested to send representatives to certain commissions studying questions of vital importance for the welfare of the town. The police and other authorities supplied it with up-to-date information on traffic in women and children ; this information was at the disposal of the present Conference and of the Pan-Pacific Women's Conference to be held next summer. It was hoped that those two Conferences would attract so much attention that something definite might be done to arouse public opinion and to cause action to be taken until the traffic had disappeared from Shanghai. Miss Perkins went on to explain how the World Young Women's Christian Association, with its organisation extending to most countries of the Pacific, was already helping to prevent the traffic and might do still more in that direction if the authorities would make use of its staff and of the facilities at its disposal. Wherever there was a Young Women’s Christian Association there was, with few exceptions, a home to which girls could go in complete safety, together with a register of rooms, boarding-houses and hotels providing real guarantees of morality. Girls were sometimes met by the agents of the Association at railway stations and ports where they arrived as strangers. That work was particularly important in the East, where there were very few sections of the Society for Assisting Women Travellers. Another important duty of the Association was the finding of employment for girls of all professions and all nationalities. In that connection, Miss Perkins pointed out that the depression, which had been very serious at Shanghai, had been a decisive factor in increasing clandestine prostitution both among Chinese and foreign women. As it was difficult to find employment for girls who had not leamt any trade, the Young Women's Christian Association, in co-operation with the Joint Committee, organised courses of instruction for nurses. But the proportion of girls who could be withdrawn from prostitution in that manner was negligible in comparison with the number of wretched girls for whom no work could be found. There was practically no vocational instruction for the great number of foreign girls who had no other home than Shanghai. They could only learn shorthand. There was, however, already an excess of stenographers, many of whom were, moreover, too badly trained to find employment. The Joint Committee was studying that question with the information service, together with the possibility of training nurses for the hospitals. In order to improve the situation, the authorities and the private organisations should develop education and vocational instruction and should find opportunities of work for young women who had to earn their living.

Miss F r a n sz (Pan-Pacific Women's Association) explained that the work of the Pan-Paciâc Women’s Association was primarily preventive, since it aimed at forming the character of girls and giving them a sense of their responsibility towards the world in which they lived. The members of the Association were also kept informed of all kinds of problems which arose in the world and the way in which they could help to solve them. In that manner, they were kept informed of the question of traffic in women and children. But this was only one aspect of the Association’s work in its endeavour to educate and train women conscious of their responsibilities and capable of thinking. Sexual education was an important element, and the Association endeavoured to raise the level of relations between men and women to a purer and higher plane. The means to that end were the articles published in the review of the Association, lectures, study groups, pamphlets, etc. The Pan-Pacific Women’s Association was affiliated with the World Young Women’s Christian Association, whose international experience was of the greatest value to it. She agreed with the previous speakers that the legislative measures would only be effective if a change were b r o u g h t about in public opinion. As regards the campaign against traffic in women and children, the private work of education and the support of the authorities must go hand in hand. Miss Fransz would propose co-operation with the authorities on the following points : (a) the informative work already mentioned in which the authorities could render valuable assistance ; (b) the Association might for its part furnish the authorities with the addresses of women living in the ports and prepared to assist them. As she had already had occasion to state, the fact that the present Conference was held in the Netherlands Indies and that private organisations had been invited to take part could but make those organisations realise more clearly the problems involved and the responsibility which they implied. The first condition for good co-operation between the authorities and the private organisations was that they should know each other, and the present Conference would have done much in that direction.

Miss G u n n in g (World Young Women’s Christian Association) gave a brief description of the work of the Vrouwenbond, a Dutch society created in 1910 which had begun its work in connection with the rehabilitation of girls in Java and the neighbouring islands. It possessed homes at Batavia and Bandoeng and in other parts of the Netherland Indies. It endeavoured to raise the moral standard of th e girls and to provide them with means of earning an honest living. For some time, the Vrouwenbond had endeavoured to assist girls travelling alone on vessels coming from Europe, but it had found that that method did not give all the desired results. — 59 — It had changed its tactics, and it now entered into contact with the girls within one week of their arrival. The Vrouwenbond was endeavouring to provide healthy surroundings for girls coming to Java and for girls leaving Java for their studies.

M. Ch e n , speaking on behalf of the China Child Welfare Association, the World Red Swastika Society of China and the Hsiang-Shan Children's Homes of China, said that co-operation had existed for a long time between the voluntary organisations and the authorities in China. He first described the co-operation which bad been established between the Chinese Government institutions and the foreign private organisations, and said that, in 1917, during the floods which had devastated the north of China, Hsiung Hsi-Ling, former Prime Minister of China, had been appointed by the Chinese Government special commissioner for the work of assistance to the victims of the floods. The Chinese Government and the American Red Cross had each contributed 200,000 dollars in order to give employment to the victims of the floods in connection with the reconstruction of the big road from Peiping to Tungshow. In co-operation with Sir Miles Lampson and many other persons, 170 homes had been opened for the women and children of the inundated districts and had been able to give shelter to about 40,000 refugees many of whom would, under other circumstances, have been sold as slaves or prostitutes. M. Chen then went on to speak of the co-operation between the Anti-Kidnapping Society of Shanghai and the authorities of the foreign concessions, and said that the Society in question had been founded twenty-four years previously and was engaged particularly in rescuing women and children victims of the traffickers. From 1912 to the present time, that society had rescued more than 10,000 victims. As regards co-operation between the Chinese voluntary organisations and the Government authorities, reference should be made to the work of the Association directed by the Minister for Finance and Vice-President of the present Executive Yuan. That association had a very wide field of action ; it had many sections and comprised three principal departments which studied matters relating to children, their welfare and protection. Those three departments dealt with boys and girls under sixteen years. The national association maintained a home for boys and one for girls. The latter had succeeded in rescuing numerous slaves from the hands of the traffickers. Co-operation also existed between private persons. For instance, during the drought of 1920, Chinese and foreign philanthropists had collected 10 million dollars for the work of assistance and for the reconstruction of the communes affected. By that means, sales of women and children had been considerably reduced ; the results had been so good that the work had been extended to all the provinces. M. Chen then pointed out that the two main principles by which the private relief organisations should be guided were :

(1) Good-will and kindness towards the women and children whom it was desired to rescue, and zeal for the social work carried out ; (2) Recognition of the fact that the rescue of victims of the traffic was not easy and that it called for the assistance of all kinds of experts.

The private organisations insisted on those fundamental points, in which, however, the Governments were most lacking. Prostitutes who were rescued without being provided with means of earning their living were in danger of falling back into immorality. He then quoted statistics showing the proportion of prostitutes examined by the Chinese authorities who were uneducated ; in order to remedy that position, to which the traffic and prostitution were partly due, it would be useful to create a joint association for co-ordinating all the efforts directed against traffickers in all the ports, and all the settlements and foreign concessions. That association might be formed by the private organisations registered with the foreign local governments. It would certainly play a most effective part in the prevention of traffic in women and children. In conclusion, M. Chen explained that the World Red Swastika Society, Chinese section, was an entirely international institution. It had been founded and was at present being directed by Hsiung Hsi-Ling. It was independent of the Government and was engaged exclusively in charitable work. It had existed since 1922 and had founded 317 sections in the various Chinese provinces, and had already to its credit considerable relief work carried out during the floods, fires and wars of recent years. Foreigners living in China and some people overseas were now benefiting from the services of the society. In addition to a certain number of temporary institutions, the Red Swastika Society of China had founded 343 permanent establishments throughout the country, among which might be mentioned 5 orphanages, 14 maternity homes, 175 dispensaries, etc. The Red Swastika Society of China had no religious prejudice ; it consisted of members belonging to all religions ; its principle was love and its object was service.

Mme. S chultz-M e tz e r (Indo-Europeesch-Verbond Vrouwen-Organisatie) said this Association had been founded in October 1931 and had not yet reached its full development. It had thirty sections in the Netherlands Indies and one in the Netherlands. It had about 3,000 members. Its work was confined to social questions. Its aim was to develop European women of the Netherlands Indies from the economic, intellectual and moral points of view. The association organised courses and lectures, especially for girls. In order, in particular, to improve their moral and economic position and thus to prevent them from falling into prostitution, the Association had opened homes for girls, especially those with small earnings, which enabled tem, in spite of their small income, to live in healthy and agreeable surroundings. In that — 6o — respect, the Association hoped to obtain the co-operation of other organisations. It hald also created a home in which women who had no means of existence could live free of charge. When necessary, it provided the authorities with information in order to help them to combat the traffic in women and children. The authorities had conferred police powers on two members of the Association, but that measure should be further extended in order to become more effective. In addition, the police women should in future receive technical instruction and should be able to devote all their time to police work. The Vrouwen -Organisatie published a fortnightly bulletin which accepted any interesting articles that might be communicated to it.

Mr. J o r d a n (Straits Settlements and Federated Malay States) desired to inform the Conference of the work of certain associations which were not represented at the Conference but which were eminently worthy of being known. In the first place, there was the Po Leung Kuk of Hong- Kong, a committee consisting of Chinese notables who met every day to consider the cases reported to it. As far as he was aware, there was no such body in any town in the world which met daily. There was also a Po Leung Kuk in Malaya, which, though doubtless less active than that at Hong-Kong, carried on admirable work. The authorities in Malaya were always glad to accept any real offer of assistance made by organisations and individuals who were fully conversant with the work which they proposed to undertake. Lastly, a tribute should be paid to the Salvation Army at Singapore, to the work carried out in Malaya and Hong-Kong for other races as well as for the Chinese, since mention had hitherto been made particularly of the work of non-Chinese organisations. In accordance with a desire expressed by the President, Mr. Jordan then submitted a draft resolution which he had drawn up in co-operation with Mr. North ; this draft endeavoured to summarise all the suggestions submitted during the course of the discussion on item IV of the agenda. The text was as follows : “ The Conference, " Having noted with approval the part that the voluntary organisations have played in forming the more enlightened public opinion which has influenced the policies followed by Governments in social questions to-day, and, “ Having heard statements setting forth some of the beneficial activities of some of these organisations, and, “ Understanding that the organisations desire to give their co-operation in ever greater measure in future and to extend their activities : “ Recommends that Governments should welcome offers of practical co-operation made by organisations established in their territories in the belief that such action will be of value in securing progress along right lines.”

NINTH MEETING.

Held on Thursday, February n th, 1937, at 9 a.m.

President : Jonkheer B a u d .

21. Closer Collaboration foetwen Police and Other Authorities and Private Organisations in the East (Item IV of the Agenda) : General Discussion (continuation).

Prince S a k o l V a r a v a r n (Siam) had little to add to the Siamese reply to the questionnaire in respect o f co-operation between the authorities and private organisations. In the first place, he would refer to the cordial relations between the missions and the authorities. The missions had received grants from the authorities, and were assisted in other ways. Their activities had not, however, extended to work in connection with the traffic in women. According to the Siamese Constitution, the general right of association was now guaranteed, and m any private associations had been formed, especially since the change of the Government. He had to admit, however, that work in connection with th e traffic in women was not one of th e objects of those associations. The Siamese Red Cross had a programme which was indirectly related to this subject, since it dealt with the education of youth. There was also some co-operation between the Health Council and private bodies in respect of public health. He might also mention the Young Men’s Christian Association and the Young Men’s B uddhist Association, which had recently been started. In view of the above conditions, it was necessary that welfare work should be undertaken on the initiative of the authorities. There had recently been a movement of decentralisation, and a tendency towards local self-government. Public assistance had, at the same time, been made compulsory. — 6i — In Siam, funds for welfare work were extremely limited. Expenditure for the primary functions of government absorbed a considerable proportion of the budget. The Government, however, realised that its first effort should be on educational lines and such work would be carried on as soon as the men and the funds were available for the purpose. With regard to Item IV of the agenda, the Siamese delegation had come to the Conference to learn rather than to impart information. In theory, however, it thought that co-operation should take place in the following spheres : (1) Re-education ; (2) Rehabilitation ; (3) Rescue ; (4) Refuge.

M. P e r e ir a (Macao) said that some private national organisations co-operated at Macao for the protection of women and children. There were also other charitable institutions, which received Government grants for the same work, with which the Catholic Missions, maintained by the Portuguese in the East almost since the arrival of the first pioneers of European colonisation, were actively associated. There was no prostitution among the native Christian population. The spiritual influence exercised by the missions in the East was too well known to require any comment. The missions maintained colleges, schools, refuges, orphanages and other institutions of moral and material assistance for young people, whether Catholic or pagan, not only in the Portuguese colonies of Macao and Timor but also in the interior of China, and in other countries which had been formerly under Portuguese domination, such as Singapore and Malacca. The Government supported those missions by large grants. As regards the private organisations, whether non-religious, foreign or international, they had never, as far as he was aware, tried to exercise their influence at Macao. If they desired to do so, they would be welcomed.

M. M e y e r (Netherlands) desired to explain the methods in force in the Netherlands Indies. Various branches of social work were, in principle, the task of the Government ; for example, the care of neglected youths and young criminals ; their compulsory education ; the care of orphans ; rescue work in connection with criminals ; poor relief, etc. It was considered the duty of the State to take the leadership in that work, though its execution was, as far as possible, left in the hands of private organisations. The Government only stepped in when private effort was unavailable. The following were the reasons for that system : (1) Social work in the Netherlands Indies was originally started by private institutions, which subsequently stimulated the Government to take an interest in that work ; (2) Social work demanded the co-operation of the whole of society, and the effort of the greatest possible number ; (3) The best social work was done by private persons and based upon personal relationships. When, therefore, the Government had become aware of its social duty, it had taken over the work begun by private enterprise, while leaving the actual performance of that work to the private organisations, whose voluntary efforts were indispensable. It was now endeavouring to stimulate them to greater effort and more systematic work. The following important consequences resulted from the above principles : (x) The State had to carry on the work itself if private enterprise was not forthcoming ; (2) If any organisation did not wish to co-operate with the State, the Government would be unable to support it ; (3) If organisations wished to co-operate, but their work was ineffective, the Government endeavoured to strengthen their efforts ; it respected the personal, moral and religious side of private work and only influenced the technical execution ; (4) If the organisations worked well, they had greater freedom of action, but, at the same time, their responsibility was wider. Turning next to the campaign against traffic in women and the protection of women and girls in the Netherlands Indies, M. Meyer recalled that the Committee on Traffic in Women and Children, at its session in April 1936, had stated that (1) there was a great gulf between the official measures taken and the attempts of private institutions to rescue prostitutes, and (2) that States generally preferred to grant social support to minors, while in other respects social assistance was mainly indirect — for instance, by means of poor relief, etc. Those statements applied to the Netherlands Indies. The welfare of minors was in the hands of the Pro Juventute organisations, which aimed at combating criminality and neglect among young people. That task included the care of minors who had fallen into prostitution or were in danger of doing so. The so-called Public Morality Acts together with the Children’s Acts offered a legal basis for the work. The organisations were in ose touch with the Department of Justice, the Police and the Government Bureau. To carry out their work, it was essential that they should be supported as far as possible by private initiative. — 62 — It was also important that private peisons or associations combating prostitution should co-operate closely with the Pro Juventute organisations. As regards the private organisations aiming especially at combating traffic in women and prostitution, it might be said that, until recently, there had been practically none in the Netherlands Indies. The assistance of such organisations had not in fact been really indispensable, because the State had been compelled to undertake considerable social work of a more urgent character than that with which the Conference was dealing. It had therefore only been able to carry out the absolutely essential work in that sphere. Moreover, the world depression had made it necessary to economise. In addition, the requirements in that sphere were not so urgent as to make a private organisation indispensable. In the predominantly native society of the Netherlands Indies, which was still somewhat primitive, the position was not the same as in Europe. Native society, which was not yet so individualist, had proved more capable than Europe of absorbing and taking care of the victims of prostitution. The causes leading to prostitution were less active and less incurable than in Europe, and could therefore be more easily removed. In addition, experience had shown that the rescue of prostitutes in the Netherlands Indies gave rise to no particular difficulties. They were usually anxious to change their mode of living after a time, and to go back to their villages to marry or to become domestic servants, etc. The problem was therefore less severe than in Europe. Rescue work would only be successful in the Netherlands Indies, as in other countries, if the organisations concerned in the work were increased. Though such organisations were of recent origin, a definite improvement had been made. It was a happy sign that the problem was being studied by natives. For instance, the association “ Pasoendan Istri ” had discussed the problem of prostitution at a recent meeting and had declared that drastic measures should be taken. In some towns, practical work had already commenced. Of the native associations which were already active, M. Meyer might mention the " Perkoempoelan Pembasmian Perdagangan Perempoean dan Anak-Anak ", which had more than twenty-five agencies. In addition to combating traffic in women, it also aimed at reclaiming women who were in danger of becoming prostitutes. Lastly, there was a home for native women at Soerabaya intended for girls in danger of falling into prostitution and for homeless women who were strangers in Soerabaya. Among the Chinese, there was the Association “ Ata Soetji Of the European associations, reference should be made to the women’s organisation of the Indo-European Association, and the Salvation Army. The former worked mainly for the welfare of women and girls in general, while the Salvation Army had homes for fallen women and women in moral danger. To sum up, since this kind of social work was only of recent origin, the Government had not been able to take up the whole of the problem of prostitution. For the present, it had three special aims : (1) The campaign against traffic in women ; (2) Measures against brothels, souteneurs, procurers and street prostitutes ; (3) The welfare of minors who had fallen into prostitution, or were in danger of doing so. It was open to question whether the Government itself had no other task than these three. In any event, it endeavoured to co-operate as far as possible with all private organisations in the country.

Professor L a b r o u q u è r e (France) said that he would speak first of the efforts made in th e past and then of the French Government’s present policy. The enquiry carried out by the League of Nations in 1931 showed that much work had been done by the private organisations in Tonkin to reclaim half-caste women who had fallen into prostitution. Most of those organisations had a religious basis ; mainly Catholic. In Cochin China, a Decree by the Governor, dated October 14th, 1929, and amended on July 12th, 1935, had set up a semi-official mutual association for social assistance. This organisation, in addition to its many other objects, had set up at Thuduc a rescue-home for girls, run by the Sisters of St. Vincent de Paul. Girls under age caught in the act of falling into prostitution, and girls arrested during raids and having no means of support, were sent to that establishment, where they learned bookbinding, basketwork and housewifery. At present, twenty-five minors were in residence, and would be given positions when they showed real improvement. There was very close co-operation in that sphere between the authorities and the private associations wherever it had been possible to set up special bodies. In the French Concession at Shanghai, the private organisations co-operated with the municipal administration. That co-operation chiefly took the form of financial assistance given as subsidies by the French Concession to those organisations. The organisations dealing with the welfare of women and children might be divided into three groups. (1) Foreign organisations (Foreign Women’s Home, Russian Women's Home, etc.) ; (2) Sino-foreign organisations (Bon-Pasteur Home, Door of Hope, etc.) ; (3) Chinese organisations. All these were subsidised. No private organisations with official functions existed in the Concession ; there was only the Anti-Kidnapping Society, which officially represented erring and — 63 — abandoned children before the Chinese courts which might entrust the children to it. At Shanghai, all these associations seldom asked the French authorities to help them in their task. The authorities granted their co-operation whenever it was sought, and were quite willing to offer the associations as efficient help as possible. In Indo-China, the French Government recognised the effective results obtained with the help of the private organisations. While paying a tribute to their efforts, the Government considered that the work of protecting women and children called for an increasing degree of intervention on the part of the State. That view had found practical expression in the social laws recently passed in France. The French Government would apply those laws progressively in the Indo- Chinese Union and the result would be the setting-up of official bodies in the different centres of the country. There was no question whatever of restricting the useful work done by the private organisations, with which the administration would always be happy to co-operate, but France was tending more and more, both at home and in the colonies, towards the organisation of the welfare of women and children as a public service.

Mr. N orth (Hong-Kong) said that there were, in Hong-Kong, probably more private organisations performing social services than in any other town of its size in the Far East, in particular, a number of Chinese committees, of which he was ex officio a member. His colleague from Malaya had spoken of the Committee of the Po Leung Kuk. There was also the District Watch Committee, which maintained, from public subscriptions, a force of 140 men, trained as police and detectives, and employed, amongst other duties, in investigating suspected cases of trafficking ; the Tung Weh Hospital, which was known throughout the East for its work in relieving distress and in providing free medical treatment and education ; the Chinese Public Dispensaries Committee, which incidentally maintained a free gynaecological clinic ; the committee of the Aberdeen Industrial School for Boys, and, lastly, the very important General Charities Fund Committee, which had the disposal of Government grants in aid of Chinese charities amounting in 1937 to 110,000 dollars and of considerable sums from private quarters.

M. A k a g h i (Japan) said the activities of private organisations for the protection of women and children in Japan were chiefly directed towards the internal aspects of the question. Of those associations, Baishoka Bôshi Kyôkai (association for the prevention of the evils of prostitution), established in 1933, was the only one which aimed at the suppression of the international traffic in the East. He would mention other organisations which had for a long time been conducting a campaign against social evils — namely, the Fujin Kyôfûkai (Women’s Association for the Reform of Public Morality) and Kakuseikai (Purificationists’ Association), founded in 1893 and 1911 respectively. In 1926, those two organisations had formed a united front against licensed prostitution under the new name of Haisho Renmei (Abolitionist League). Those activities in various localities had hitherto led to good results, since the resolutions for abolition passed by ten Prefectures had in most cases been preceded by energetic work on the part of the Abolitionist League. The action taken was not entirely independent, but had received the tacit encouragement of the Government ; that state of affairs would continue for some time to come. Now that the private organisations were fully aware that their objective was in sight, they had confidence in the Government and were willing to act along the lines it indicated. The question of co-operation between the authorities and private organisations was of the highest importance, when it was remembered how delicate the question was in Japan. It was under those circumstances that, in 1935, the above-mentioned organisations had united to form a Kokumin Junketu Dômei (National Purification Union), in order to prepare for the period following upon abolition. The Government was aware that much still remained to be done, and proposed, for that purpose, to keep in close touch with the private organisations. The main points in the programme which the Government intended to carry out were the education of both sexes regarding their social and moral responsibilities, the enlightenment of public opinion, vocational training, the finding of suitable work for the unemployed, the rehabilitation of prostitutes, etc. It was impossible to enumerate all the forms of co-operation that occurred in individual cases between the authorities and such private organisations as the Salvation Army and Aikoku Fujin Kwai. M. Akaghi would give one example : during the agricultural depression in Tôhoku districts in 1934, more than 200 branch offices of Kyôfûkai had been set up on the suggestion of the local authorities, and a very large number of young women of poor families had received assistance as a result of that action. In conclusion, he would express his entire approval of the draft resolution submitted by Mr. Jo rd a n .1

Mr. J o r d a n (Straits Settlements and the Federated Malay States) said that, in his speech at the previous meeting, he had omitted to mention certain organisations engaged in welfare work in British Malaya. He had only referred to the Salvation Army and to Chinese unofficial organisations. He wished also to pay a tribute to the Roman Catholic organisations which had, for many years, done excellent work, in particular, the convents established in all the large towns. He would also refer with appreciation to certain Anglican bodies, especially the St. Andrew’s

1 See page 60. — 6 4 — Hospital, at Singapore, which received a large number of child victims of the traffic. In addition, there was the St. Nicholas Home and other Protestant organisations too numerous to mention.

Mrs. M u k e r j e e (India) gave an account of the co-operation that had existed between the police and other authorities and private organisations in the more recent legislation for suppressing brothels passed in the provinces of Madras, United Provinces, the Punjab and Bengal. India was a large country and various private organisations were now springing up having rescue homes, and the necessity of collaboration between those associations and the authorities was very important. In some cases, the homes were recognised and had Government aid. The Salvation Army had perhaps come forward long before any other organisation in giving shelter to rescued girls. Organisations of a non-sectarian character were in existence now and had developed within the last ten or twelve years. In some cases, those organisations were formed by Indian and European women and in some provinces by Indian women themselves. Considerable constructive work had been carried out, which demonstrated the value of close collaboration between private organisations and the authorities. In addition, she had had personal experience of the work of the All-Bengal Women’s Union which had been successful in prevailing on the authorities, to a certain extent, to introduce stricter legislation for the suppression of immoral traffic. Last but not least, she would mention the All-India Women’s Conference, which had branches throughout India ; when, at any of those branches, practical work to help in this question had been undertaken and support had been needed from the authorities this had to some extent been received. All over the country the women were willing to help ; she hoped that the present Conference would make some practical suggestions for still closer collaboration between the authorities and these private organisations. There was need for more rescue homes. In Mrs. Mukerjee’s opinion, there should be Government rescue homes, as there were Government schools. In view of the fact that the authorities were now realising the importance of giving aid to such homes, a time would no doubt come when such homes would be started. There were remand homes belonging to the Government which gave temporary shelter. But homes started by private organisations received girls from remand homes of which some only were aided and recognised by the authorities. In the replies of the Governments of the various provinces to the questionnaire of the League, mention had been made of the homes started by the Vigilance Association, and the assistance given to the authorities in reporting cases. Other private organisations which had helped had also been mentioned in those replies. There was, further, the Societyfor the Protection of Children in India. The All-Bengal Women’s Union, to which she had already referred, had started a home for girls over sixteen years of age rescued under the Suppression of Immoral Traffic Act.

Professor Co r r e ia (Portuguese India) recalled that Portuguese India was the oldest of the colonies that had been founded in the sixteenth century by western races. As soon as the Portuguese conquerors of the town of Goa had arrived, they laid the foundations of a pious institution for receiving and educating European and native girls and giving shelter to widows and women whose husbands were absent from the principal town in the colony. Founded in 1510, the institution was no less than 426 years old and it had, during that long period, greatly assisted the Government of Portuguese India in caring for the sick, in educating boys and girls, in assisting the poor and in protecting women, whatever their race. This institution, the “ Holy House of Mercy ”, maintained a general hospital, an asylum, an anti-tuberculosis sanatorium, a large secondary school for girls and a home for old women ; it also distributed large sums of money in the form of pensions, relief and alms. In addition to the Holy House of Mercy, there were also in Portuguese India the Margâo hospice, the Mapuca home, and the Poor Relief of Nova Goa. Those were the most important organisations both in respect of their aims and their means of action. In addition, there were a dozen institutions on a more modest scale. Mention should also be made of the Catholic missions, the most important being that of the Fransican nuns, which were engaged in social assistance and the protection of women and girls in Portuguese India. All those institutions, associations and missions together carried on really remarkable work which was of the greatest value to the community. The Government of Portuguese India was thus greatly assisted by private initiative. Co-operation between the Government organs and the voluntary associations was most cordial.

M. P e r e ir a (Macao) said he had not yet seen the French text of the report submitted by the Chinese delegation,1 but, after perusing the English text, he thought he could say that the Portuguese delegation shared the view expressed by Mr. North.

The P r e s id e n t read a letter which Miss Shephard had requested him to communicate to the Conference. In this letter, the Central Organiser of the Association for Moral and Social Hygiene in India drew the attention of the Conference to a memorandum from the Association,2 containing a brief account of the co-operation existing between the authorities and the voluntary organisations. It was essential, she said, that the social workers should receive abolitionist

1 Document Conf./C.T.F.E./Orient 25. 2 Document Conf./C.T.F.E./Orient 21. — 65 — training before starting their work against the traffic in women and children. It should be remembered that the campaign was directed against a spiritual evil and that spiritual training was as necessary for that purpose as technical training.

Brigadier L o r d (Salvation Army) said he quite agreed with the view expressed by M. Meyer as to ideal co-operation between Governments and private organisations. It was quite true that the Governments did not interfere in the internal organisation of an association when they were assured that the grants which they paid to such association were spent in an intelligent manner. So long as the Government knew that to be the case, it continued to pay the grants, but it withdrew them when it considered the association to be no longer worthy of its confidence. That was the only possible basis of co-operation between the authorities and the private organisations. Social work was a matter for the State, but it was quite certain that the officials of the administration could never deal with all the details of such work ; if they must therefore have recourse to the services of the private associations, the latter must bring their conduct into line with the principles adopted by the Government. The private associations must refrain from any political action for or against the Government. Such was, in any case, the line of conduct followed by the Salvation Army and which was laid down in its statutes. Brigadier Lord went on to point out that it was not for the private organisations to dictate social policy to the Governments. I t was no doubt their d u ty to give advice and counsel, b u t they must not go further, since it was the duty of Governments to govern. He regretted to state that the private organisations sometimes appeared to be on the defensive. They had no position to defend at the present Conference ; they were doing their best for the welfare of humanity in the hope that the Governments would help them, but they were mainly created for the public. On the other hand, they must not take the offensive, for it was not for them to force the doors which the authorities considered should be closed to them. The private organisations were no doubt desirous of co-operating in every way with any Government, of any faith and of any political party, for the common good. At the side of the authorities, there should be a department, or at any rate an official, with the special duty of providing for liaison with the private organisations. In that connection, Brigadier Lord had found that no Government was more desirous of co-operating with those organisations than the Japanese Government. It called together the voluntary associations almost every year to explain its programme of social work. It would, moreover, be wrong for a Government to think that any reforms desired by the voluntary associations were directed against the Government. Nothing could be further from the truth. The members of the Salvation Army, in particular, had no right to engage in Press controversies against the Government. Moreover, experience showed in general that the Governments were in sympathy with any form of good and effective assistance granted by the private associations. In conclusion, Brigadier Lord said the Salvation Army was in favour of the draft resolution submitted by the delegate of the Government of the Straits Settlements and Federated Malay States, subject, however, to a slight amendment in the last paragraph.

Mme. S ch ultz-M e t z e r (In do-Europeesch-Verbond Vrouwen-Organisatie) submitted the following draft resolution : “ The Conference, “ Having noted the information supplied during the discussion on the work carried out by the private, national and social organisations, “ Observing that there are a great number of other organisations not represented at the Conference, which also carry on very useful and appreciated social work, “ Considering that it would be of value in each country to organise consultations between the Governments and the organisations that they consider capable of rendering assistance, when such organisations have for their part expressed their willingness to co-operate, since such consultations would by means of mutual work help to solve the social problems, would favour the exchange of valuable information and would not involve excessive expenditure for the Governments concerned : “ Recommends the Governments to consider the possibility of organising periodical consultations of this kind.”

The P r e s id e n t pronounced the discussion closed and suggested that this item of the agenda should be referred to the Bureau, supplemented on this occasion by a delegate from each of the following organisations : the Sacred Congregation de Propaganda Fide, the International Missionary Council, the Salvation Army, the World Young Women’s Christian Association, and the Indo- European Women’s Association. The President’s -proposal was adopted.

22. Possibility of employing a Larger Number of Women Officials by the Authorities responsible for the Welfare of Women and Children (Item V of the Agenda) : General Discussion.

Mile. W u K u a n (China) said that, after the 1911 revolution, Chinese women had gradually won their freedom and attained their present social position. As a result of the students’ movement °* I9I 9- most o f the higher educational institutions had been opened to women. In 1926, the second K uo Min Tang Congress had entirely and officially recognised women’s rights. There were women magistrates in the Chinese courts, just as there were women in the headquarters of the army and police. Their work was equal to that of the men. The female staff of the Kuo Min Tang and its programme in respect of women were sufficient to show the importance that women had assumed in the political circles of present-day China. She mentioned other examples to prove that women were now taking a very active part in the whole of public life in China. For a number of years, China had employed women in the police, at Hangchow, Peiping, Nanchang and Canton. At Shanghai, university women had undergone training courses for police work and would be engaged in the protection of women and children. Many women officials were working in the offices of the police and of social affairs in various provinces of China ; as regards the office of social affairs in particular, there was a growing tendency to give high posts to qualified women. Moreover, private organisations, such as the National Child Welfare Association of Shanghai, the Hsiang Shan Children’s Home of Peiping and the Nanking Children’s Home were almost entirely directed and administered by women. Since numerous Chinese women had obtained university diplomas in social science and law, a staff was available which was quite prepared to render service to the community. The Yenching University at Peiping was at present co-operating with the Hsiang Shan Children’s Home in the training of social workers dealing with women and children. Those workers were trained both from the theoretical and practical point of view. Since many Chinese women who were well versed in social questions had been employed to the satisfaction of all, there was no doubt as to the possibility in China of employing a larger number of women officials in departments engaged in the protection of women and children.

Miss G u n n in g (World Young Women’s Christian Association) thought that the police could only gain the confidence of women and children by means of women officials. This applied more particularly to the immigration services. Naturally, the women officials must receive suitable training and, in particular, should belong to the same race and speak the same dialect as the women they had to examine. She also thought it would be useful to appoint a woman official to the central section of the departments of justice and police ; that official would be, if possible, a university woman and would be responsible for studying the best means of employing women in the police and especially in the campaign against the traffic.

Miss W o o dsm all (World Young Women’s Christian Association) thought a distinction should be made between two categories of women officials. In the first place, the higher ranks of the administration should include probation officers, women representatives attending the courts when they dealt with proposals relating to women and children ; for such posts, it was essential to find highly qualified candidates. In that connection, she referred to the remarkable services rendered in India by women judges in cases relating to women and children. In the second place, there should be women carrying out police duties, who, unlike the former, should have full police powers. In the draft resolution on this subject1 emphasis was laid on the “ num ber” of women employed in the police ; it was also necessary to emphasise the " quality ” of that staff, which was as indispensable as the number.

Brigadier L ord (Salvation Army) thought the presence of women in certain services was not only useful, but was indispensable for their proper working. In his opinion, two kinds of women officials should be taken into consideration, in the first place, those employed by the police to carry out duties which could only be performed by women. For instance, only women were capable of taking useful action at the particular moment when a girl began to engage in prostitution and of rescuing her from vice. Those officials should be absolutely independent of any charitable association and should be under the orders only of the Government authorities. In addition to that category of officials, there should be probation officers without police powers, as Miss Woodsmall had pointed out, who would have access to the courts in cases relating to prostitution. There would be no objection and, in fact, it would be very useful, if the probation officers were members of private organisations combating the traffic ; experience in m any countries had been very conclusive in that respect.

Professor La b r o u q u è r e (France) pointed out that neither Indo-China nor the French Concession at Shanghai employed women in their police services. On account of the social conditions and local traditions in Indo-China, the part played by women in the public life of the country was very slight. The co-operation of women officials would not give good results. There was no reason to try to employ women in the police services ; nevertheless, women officials under the control of the police might give effective assistance to the administration in its task of moral rehabilitation. On the other hand, the organisation of labour inspection was being studied in Indo-China, and he was certain that it would be very desirable to appoint women inspectors to visit factories employing women. The idea of allowing women to take part in the work of the courts in cases relating to the protection of children and the rehabilitation of women, was a most interesting one and deserved further study.

1 For the final text of the resolution, see resolution V in document C.228.M, 164.1937. IV (Annex 5, page 106). — 67-— To sum up, Indo-China was compelled, for the present, to reserve its attitude towards the employment of women by the police, but could already consider the possibility of the co-operation of women in administrative work on behalf of women and children.

Professor Co r r e ia (Portuguese India) said there were no women in the police of Portuguese India and that it was impossible to foresee any change in the position. The police organisation depended on the Government of the colony, and any proposals which it made must be approved by the Government of the home country. That being so, he would merely take note of the suggestions put forward and transmit them to the Government of Portuguese India.

Mrs. M u k e r j e e (India) was entirely in favour of the employment of women in the administration for the protection of women and children and also of giving special police powers to suitable women to deal with questions concerning women and children. Women in the administration, and with special police powers would undoubtedly be of great help in the campaign against this traffic as they would understand the problem better. The probation officers in some towns in India had worked with great success, as well as women magistrates in children’s courts. She understood that similar proposals were being considered elsewhere. In Rangoon, two women social workers of the Vigilance Society were employed wholly in the prevention of traffic in women and children, one of them being invested with special police powers. In India, in the town of Cuttak, a woman worker had also been vested with the powers of an inspector of police, so that she might visit and inspect brothels within the limits of the municipality. These women had been able to get into closer touch with prostitutes, and had been able to help them to rehabilitate themselves ; it was in this direction that their work would be essential and most effective. It would no doubt take a little time to have a sufficient number of trained women as officials or as social workers with special police powers, but a start should be made as early as possible. Mrs. Mukerjee hoped that all Governments would consider taking up the matter seriously.

Miss Gu t h r ie (United States of America) said that, in the Philippines, there were at present two women employed in the services dealing with the protection of women and children. Some months previously, at Manila, a woman had been appointed judge for cases in which women and children were involved. Lastly, again in the Philippines, a young woman doctor in charge of the medical service of a women’s prison was doing excellent work. There was no doubt that the Philippines would welcome any suggestions which might be submitted by the Conference regarding the employment of a larger number of women officials by the authorities responsible for the welfare of women and children.

M. Co e r p e r (International Criminal Police Commission) said that, as there were only two honorary policewomen at Batavia, the Netherlands Indies had not yet gained sufficiently extensive experience of the system to judge of the results in the territory. In any case, the appointment of women in the police force would probably be welcomed in the Netherlands Indies. The International Criminal Police Commission had found that women had always rendered very valuable services in the police force, and it recommended that their employment should become more general.

Mr. J o r d a n (Straits Settlements and Federated Malay States) said that, in Malaya, the position was not quite the same as in most of the countries represented at the Conference. The work of suppressing the traffic in women and rehabilitating prostitutes was, in fact, not entirely in the hands of the police authorities, but came partly under the department of which he was the head. Since 1929, women had been employed in that department, and the women’s organisations were not confronted by a closed door in Malaya. The authorities were desirous of employing more women provided they could find candidates qualified in every respect. That was, moreover, the great difficulty of finding competent women, but as soon as a really capable woman applied, a post was created in order to engage her. One of the points on which the co-operation of women might be useful in Malaya was the work of following up women after their rehabilitation. The authorities in Malaya were endeavouring to bring their girls’ homes up to the level of the public schools in England. In that connection, Mr. Jordan pointed out that the former inmates of the Po Leung Kuk in Singapore were glad to return every year for the festival of the home and brought their husbands and children with them. Unfortunately, all the girls who had passed through those establishments did not succeed in life, and they should be followed up. For such work, the voluntary associations were better qualified than the Government officials, since the supervision exercised by an official might cause the public to think that the person concerned was not of unimpeachable morality. The Government of Malaya was considering the establishment of a system of children’s courts. There was no doubt that the authorities would favour the employment of a woman in those courts, but the difficulty was to find a competent person. The suggestion of appointing probation officers was extremely interesting, while the proposal to appoint policewomen was more difficult of acceptance in countries which were in a special position, such as the Straits Settlements and Malay States. In those countries there was, however, a woman in charge of the protection of Chinese women and she had a female staff. In any case, if the Governments of the Straits Settlements and Federated Malay States found that there was any advantage in appointing women in the police force, they would not fail to do so. At Singapore, the woman official responsible for the protection of Chinese women, together with her staff, examined women coming from China ; thus, as far as Singapore was concerned, a suggestion submitted during the morning was already met. The luggage and clothing of women travellers were examined solely by women inspectors at the Customs and Excise offices.

M. Ch e n (China) thought that the problem under discussion also related to women detectives who could, in his opinion, do useful work.

The P r e s id e n t proposed that item V of the agenda should be referred to the Bureau which would prepare a draft resolution taking account of the observations and proposals submitted during the discussion. The President’s proposal was adopted.

TENTH MEETING.

Held on Friday, February 12th, 1937, at 9 a.m.

President: Jonkheer B a u d .

23. Problem of Women Refugees of Russian origin in the Far East who have been or are in Danger of becoming Victims of the Traffic (Item VI of the Agenda) : General Discussion.

Miss P e r k in s (World Young Women’s Christian Association) said she had been in very close contact with the Russian community in Shanghai for ten years, and had observed the situation through her acquaintance with girls and women of Russian origin who came to the employment bureau of the Association. No words could exaggerate their tales of suffering, and usually it was impossible to help them. They were mostly of the peasant type from Siberia, and were unemployable as they had no training in any useful work in the city, and knew no language but their own. As there were almost no positions for unskilled female labour, it was impossible for most of them to earn an honest living. It was no wonder that many girls and women were forced into a life of professional or clandestine prostitution in order to support themselves and their families. Over one hundred thousand Russians had fled across the border into China, mainly Manchuria, where they had somehow managed to exist on the land and in the large cities such as Harbin, trickling down in a steady stream into the other cities of China. Conditions in the north for the last few years made it almost impossible for them to earn a livelihood, so that the girls had come in increasing numbers, enticed by tales of the bright lights of Shanghai and other cities and the supposedly easier life there than in the north. She bad nothing but admiration for the way in which the Russians had tried to take care of themselves and find a foothold in a strange country. But the task of building a new community and assimilating the constant inflow of new arrivals was too heavy for one group alone, and in Shanghai it had become a most pressing international problem. The non-Chinese population of the city was about seventy thousand, and the Russians made up approximately one-third of that number. At the time of the League report, it was estimated that there were over nine thousand women, and the number had undoubtedly considerably increased since that time. There were no new figures available, but the French Concession, where most of the Russians lived, was just taking a new census. Shanghai was a unique city in almost every respect, and even relief was administered differently there than in a city under uniform control and with no exterritoriality. Each nationality was compelled to take care of its own needy citizens, but this was naturally impossible for the Russians. The conditions under which many of them lived were appalling. In addition, the coming generation was not getting the care and training necessary to become decent citizens. Among the Russians there were a number of relief organisations, hospitals and schools, but all were struggling under a terrific financial trarden. Other nationalities gave generous help, but during the depression and uncertainty of the present time, each had all it could do to look after its own relief problems. The Russian schools were entirely inadequate to accommodate all the children, and the other schools were too expensive for most of the parents to afford. Free or inexpensive medical care was hard to find for any foreigner in Shanghai. As an instance, the women's clubs had been unsuccessfully trying to get one free bed for foreign children in one of the leading hospitals.^ The difficulties experienced by destitute Russians in respect of general attention, and in particular of maternity care, could well be imagined. - 6 g - Miss Perkins ventured to make this appeal for help for the women and children of Russian origin in Shanghai, because she knew the hardships, suffering and degradation which they were experiencing. The problem existed in other cities of China, but not to the same extent as in Shanghai. Moreover, it was an international responsibility which should no longer be neglected, since the position was not improving. Practical suggestions for relief for the group in which her organisation was immediately interested — that was to say, women and girls together with the children — should include a home to take care of girls arriving at Shanghai, or girls who were homeless or unemployed, with, if possible, some financial aid for training in useful work, the care of children by health measures, schools, and a home where old and worn-out women who could never find work again, and for whom no one was responsible, could live. All that work could be carried out by granting assistance to existing institutions. In order to carry out this, or any relief programme, a neutral person or small committee should be appointed to study the entire existing situation. This could be done at comparatively little expenditure and might be the means of finding a solution. She wished to urge the Conference to take some action on the point.

M. S u n g (China) said that, in dealing with the Russians, China at present adopted two kinds of measures, relating (i) to those entering China, and (2) to those already situated there. It was reported that there were over one hundred thousand Russian refugees in China. The problem of dealing with such a number of people was of no small magnitude. China granted them right of citizenship if they desired it, and granted them the same privileges as to her own people. Those Russian women who were tolerated or were capable of doing a certain amount of technical work could get on quite well in China. But those who had no training or skill would have a hard time. That class of people needed attention and help. The Chinese Government and local voluntary organisations would do as much as they could for them. China had adopted somewhat strict measures in respect of Russian immigrants, in order not to aggravate the situation. Any Russian desiring to enter China had to present some credential to show that he was a relative of some Russian already domiciled in China, or would be employed by a firm or shop. In other words, the immigrant must have a definite reason for entering the country. Tourists were naturally not subjected to that treatment. As the problem of Russians in China was somewhat complicated, the Chinese Government was not in a position to take any further steps in addition to the action already undertaken.

Mile. Y e n (China) said that in China, and particularly in the three eastern provinces and in Shanghai, the problem of women of Russian origin had assumed the dimensions of a social mass problem. According to the official report of the League of Nations — document A.12 of August 15th, 1935 — the number of Russian refugees was as high as 110,363. They came over the Russian border first to the three eastern provinces, to Harbin and Mukden, and then gradually scattered southward to Peiping, Tientsin, Chefoo, Tsingtao, Shanghai, Hankow, Amoy, Swatow and Canton. But recently more had come down from the north to Shanghai. Shanghai alone claimed 9,600 women and girls of Russian origin, and out of that number 2,400 lived in the International Settlement, 6,000 in the French Concession and the remainder in Chinese territory. Those who had expert knowledge or any special talent had weathered the storm very well, in spite of extremely difficult circumstances. For instance, one Russian had composed several Chinese ballets which were played by the Shanghai Municipal Orchestra and performed successfully by the International Arts Theatre. Others became dress designers, music teachers, classical dance instructors or language teachers. Others, with technical training, did very well in factories and firms. Then there were those belonging to a second class, who had no highly specialised training, but were enterprising. Assisted by a small amount of initial capital, they had started shops, restaurants, boarding-houses, beauty parlours, riding-schools and fur-stores. In an occupational survey according to nationality, made in 1935 by the Shanghai Municipal Council, it was found that there were 1,683 Russian men and 1,334 Russian women employed in some 149 different occupations within the International Settlement. That class did fairly well. Unfortunately, there was a third class of Russians, with no training or preparation to fight for an existence. The men consequently drifted into unemployment, and the women were more or less forced to resort to prostitution out of necessity, in some cases having started as dancing partners and drifted into casual prostitution. In the International Settlement alone there were 50 Russian-owned and staffed brothels, which housed approximately 500 prostitutes. In the French Concession, there were 30 professional Russian prostitutes and 470 casual ones. It was interesting to note the sex ratio of the foreign population in the French Concession. There were 9,493 men and 18,352 women. In Chinese territory, there were 270 more prostitutes of Russian origin. It was easy to judge from these figures concerning Shanghai the magnitude of this problem in China. The Chinese Government allowed the refugees of Russian origin to acquire Chinese citizenship, and they were entitled to enjoy schooling, relief and medical care like other Chinese. In addition to the relief work that had been reported to the League already in document A.12.1935, the shanghai municipal schools allowed 10% of their students full scholarships and 5% partial — 70 — scholarships, of which Russian children could avail themselves. A Russian school established in the International Settlement was subsidised by the Municipal Council. After this elementary education, girls could go to business schools or other vocational schools for more specialised training, but as that required a certain amount of money, in spite of the low cost of tuition, financial assistance was needed. Private relief organisations were giving a great deal of assistance, but since the problems had assumed such proportions the demand for relief had gone beyond the scope of individual private relief organisations. In addition, there was lack of cohesion and co-ordination between them. She would suggest, therefore, that an agency be appointed by the League, preferably international, like the Nansen International Office for Refugees, the International Branch of the Shanghai Young Women’s Christian Association, the Salvation Army or the Joint Committee of seventeen women’s organisations of Shanghai, to stimulate further efforts and to centralise all the relief work carried on. Mile. Yen would suggest further that the League should consider ways and means of setting aside or raising a certain sum for the purpose of establishing vocational schools, relief homes, loans and direct financial assistance.

Professor Labrouquère (France) said that the question did not really concern Indo-China. Only a few Russian women, most of them dancers, came for a short time to Indo-China just to practise their art. To enter the colony, they needed a passport visaed by a French consular authority with the approval of the Government. The authorisation was only granted if favourable information about the women concerned had been given by the consuls of the countries in which they resided. The formalities mentioned in the Decree of August 31st, 1935 (the necessity of producing a surety, a copy of their legal record, and a medical certificate), were an obstacle to their visiting Indo-China for the purposes of prostitution. In the French Concession at Shanghai, there were about six thousand Russian women and girls ; the number of prostitutes was roughly 500 ; the number of professional prostitutes was estimated at 30. The latter figure had been much higher some years before, but had decreased very rapidly on account of police prosecutions. There were no clandestine houses of prostitution in the real sense of the word ; disguised houses of prostitution (massage establishments) were under very strict supervision. The most difficult question was that of casual prostitution. It was reported that there were 500 Russian taxi-dancers, waitresses in restaurants, etc. They took to prostitution for various reasons, some practical, some psychological. The majority of these women knew only Russian and had no occupational training ; they were thus reduced to earning their living in easy ways, as saleswomen, waitresses, dancing partners. Living in a different environment from their own rapidly increased their needs and they desired employment which would make it possible for them to live more or less in comfort. Of the five hundred Russian prostitutes to which he had referred, two hundred were minors and three hundred were over twenty-one. Most of them lived in the particular part of the town mostly frequented by their compatriots. The Russian women and girls who were not prostitutes earned their living with the greatest difficulty. They accepted the low wages of the Far East in competition with Chinese women. There were some French associations which gave assistance in the form of clothes, shelter, etc., and a number of international organisations carried on moral rehabilitation work. Those efforts at rehabilitation had not, however, been entirely successful, because there was no real co-ordination between the various institutions. Professor Labrouquère therefore suggested the appointment of a central organisation to take preventive measures in respect of those women who were in danger of becoming prostitutes, and to rehabilitate those who were likely to react to such treatment. It might also be suggested to business firms that they should accept a certain proportion of Russian employees. In addition, the League of Nations might perhaps place funds at the disposal of the voluntary organisations. There should be an international organisation working in China under the League of Nations and possessing the necessary financial means. Even if a resolution to that effect were voted, the problem would not be entirely solved. It was extremely complex on account of the special psychology of these Russian women, and on account of the fact that they had no nationality. The question itself was worthy of careful study by the Conference.

M. S am p aio (Macao) said the problem of Russian refugees who had become, or were in danger of becoming, victims of the traffic scarcely arose in Macao. There were a few Russian women in the colony, but they earned their living honestly and their passports were in order. In that connection, the only fact worthy of mention was contained in the reply to question 6 of the questionnaire— namely, that, in October 1935, sixteen Russian dancing girls and two persons of the same origin accompanying them had been suspected of traffic. If, in the future, any of the women of Russian origin were forced by difficulties into prostitution in the territory of Macao, the Government would co-operate with the League of Nations in an endeavour to rehabilitate these unfortunate women, both morally and materially.

Mme. Schultz-M etzer (Indo-Europeesch-Verbond Vrouwen-Organisatie) ob served that, for some years, the Fifth Committee of the Assembly of the League of Nations, in dealing with hum ani­ tarian questions, had gone into the subject of Russian women in the Far East. At the last — 71 — Assembly, the Fifth Committee, in considering a proposal to send a special mission, had suggested that a member of the mission should be a person especially qualified to study the problem of Russian women.1 There was a very definite need for a study of that question in the Far East. A drama was being enacted day by day in the Far East, and it was essential that Europe and America should be aware of it. Hitherto, a certain number of reports had been published by the League, but the general problem was far from being cleared up. The information received was very contradictory and should be used with great caution. In view, however, of the report of the Fifth Committee, there was no doubt whatever that the problem should be settled as promptly as possible. It was sufficient to state that, according to a cautious estimate, there were 1,800 Russian women at Harbin alone living by prostitution, while 300 of those women were isolated in the so-called Chinese part of the town. In addition, according to a no less cautious estimate, there were as many as 800 Russian women engaged in prostitution at Shanghai, while 900 more Russian women were in danger of the same fate on account of the deplorable circumstances in which they lived. In many other towns, such as Hankow, Canton, Mukden, Tientsin, Tsingtao, Peiping, etc., Russian womeji were forced into the same profession. According to information published by the Fifth Committee, as a general rule, only 5 % of the Russian women in this position had engaged in prostitution in Russia.2 The majority of them had left Russia in 1918/19 and grown up as immigrants. The cause of this drama was not far to seek ; it was unemployment. It was practically impossible for Russian women to find work in the Far East. A further cause which affected the increase in unemployment was the difficulty of competing with cheap native labour. Only a very small percentage of Russian women had been able to obtain work. For example, out of 2,000 Russian women at Shanghai, only 25 % had been able to earn their living in a normal manner. The reports showed that the vast majority of the women were forced into prostitution, in order to provide for their families and children. The difficulty of finding work made it almost impossible to combat that position. Although there were a number of Russian and foreign charitable institutions in “ Manchukuo ” and China engaged in assisting Russian women, their efforts had hitherto led to no definite results. They had encountered the same essential difficulty— that was to say, the impossibility of finding normal work for Russian women. It was impossible to regard the future with much optimism, as large-scale assistance was required in order to combat the distress. The necessary means were not in the possession of the organisations. The difficulty could only be overcome by generous assistance from Europe and America. Her object in making these remarks was to appeal to all present in the Conference, either as delegates of various countries or representatives of private and humanitarian organisations. If each one recognised the tragedy of the Russian women in the East, it might be possible for Europe and America to send a representative of the League of Nations to study the existing situation, after which financial means might be found to remedy this state of affairs. The Conference should not close without having reached the conviction that everything that was possible would be done. It was owing to the hospitality of the Dutch and the fact that they made no distinctions as regards foreigners that the Russian women who had come to the Netherlands Indies had found work, and the distress existing elsewhere did not exist in the Netherlands colonies.

Miss W o o d s m a ll (World Young Women’s Christian Association) referred to the experience gained in connection with Russian women at Istanbul from 1919 to 1930. The problem at Istanbul had presented somewhat different aspects from that in the Far East, but it had been settled by the co-ordination of private efforts through an official Commission of the League of Nations. Such a problem could not be effectively solved without some official and neutral agency. The most important factor was naturally finance. But even if funds were available, it would be necessary to provide some method of co-ordination and guidance. This might take the form of a central bureau or an individual, preferably a woman, appointed for the purpose.

Miss Ma l t h e said that, in 1934, a Conference had been held at Copenhagen attended by missionaries and business men from Manchuria and Shanghai. Very complete information on the position had been submitted and had been sent to the League of Nations. It appeared that many of the Russian women had crossed the frontier without permits and were therefore not in a position to apply for assistance. It was encouraging to see that the organisations in Shanghai were doing all they could to help the women. She was glad to support the suggestion regarding the appointment of a central office to deal with this question. There was plenty of money in tbe world, and it would no doubt be forthcoming. It was not the first time that such a question had arisen and had been solved. She hoped the Conference would make an appeal to world public opinion on the subject.

1 Document A.62.1936.IV (see Official Journal, Special Supplement No. 160, page 56). 2 Document A .12.1935.IV, page 8. — 72 —

The P r e s id e n t read a letter from Miss Shephard to the effect that a fund had been started by the Association of Moral and Social Hygiene at their London headquarters to assist Russian refugees. As the Nansen office would be closed in 1938, an appeal for funds would be highly desirable.

Mr. J o r d a n (Straits Settlements and Federated Malay States) said the question did not concern Malaya and he was therefore able to regard it in a detached manner. The challenge put forward by the League to the private organisations to collect funds in any way they chose should not be allowed to go unanswered. It appeared from the remarks made, and in particular from Miss Shephard's letter, that some funds had already been collected. The experience gained at Istanbul, where the work was co-ordinated by an official agent, seemed to be an indication of the line of action to be adopted at Shanghai. He ventured to submit the following draft resolution on the subject :

“ The Conference,

“ Recalling that the Assembly of the League of Nations in 1935 adopted a resolution authorising the Secretary-General of the League of Nations to endeavour to secure the services of a competent person (preferably a woman), resident in the Far East, or in a position to proceed there, who could act as agent of the League of Nations, provided that such an appointment involved no financial charge upon the League ; “ Noting with great appreciation the efforts that have been made by the voluntary organisations to achieve this end, but regretting that these efforts have had so far only a partial success ; “ Realising that this problem of the future of women of Russian origin is of the greatest importance, that it is a challenge to the social conscience of right-thinking people and that it has been specially brought to the attention of this Conference by the Assembly of the League of Nations : “ Desires to impress on the voluntary organisations and on other bodies and individuals interested in their work the absolute necessity of raising funds of an amount that will enable an agent of the League of Nations to be appointed in the Far East to take special charge of the co-ordinative measures necessary to secure the future of these women of Russian origin.”

24. Adoption of the Draft Resolutions submitted by the Bureau of the Conference.

The Conference adopted the draft resolutions submitted by the Bureau with regard to each Of the six items on the agenda.1

With regard to the resolution concerning Item IV of the agenda. Miss W o o d sm a ll (W orld Women’s Young Christian Association) said that, at a semi-official meeting held the previous evening, the private organisations had decided to propose to the Conference to mention certain points in its draft resolutions. She had been glad to note during the morning that all those points were dealt with in the texts drafted by the Bureau. Only one suggestion had not been included—namely, that made by Brigadier Lord, which referred to the appointment in each competent administration of a bureau or official responsible for establishing liaison between the Government departments and the private organisations. It would be too late now to draft a fresh resolution on that point, but she thought the Information Bureau would be competent to deal with the question.

ELEVENTH MEETING.

Held on Saturday, February 13th, 1937, at 11 a.m.

President: Jonkheer B a u d .

25. Adoption of the Report of the Conference.

The report of the Conference was adopted without observations (Annex 5, page 101).

1 For the final text of the resolutions, see the report of the Conference (Annex 5, page 104). — 73 —

TWELFTH MEETING.

Held on Saturday, February 13th, 1937, at 5.30 p.m.

President: Jon k h eer B a u d .

26. Close of the Conference.

M. E n t h o v e n , Director of the Department of Justice, spoke as follows : With the greatest interest, the Government of the Netherlands Indies has followed the proceedings of this Conference from day to day. It has noted with special satisfaction that the discussions have assumed a more and more concrete form and that ways and means have been found to solve the various problems under consideration. Thus, a remarkable result has been achieved in the days that now lie behind us. Representatives of many countries, having each its own history, its own social questions, its own moral views, its own religion, have met in order to deal frankly with one of the most intricate social phenomena connected with human nature. Was it therefore not an uncommonly important undertaking that was started on February 2nd, 1937 ? And am I not right in qualifying it as an “ experiment ” of great value? Now that you have come to the end of your discussions, it would appéar to me that you have been extraordinarily successful in reaching an agreement, inspired as you have been by an earnest wish to contribute to the common cause and to give the utmost that your countries had to offer, in your efforts to bring this Conference to a noble end. Allow me to offer you my congratulations upon your success. It would appear to me that it has been the spirit of collaboration between all countries and groups represented at this Conference which must be credited with the attainment of its aim. It is not for me to digress upon the results obtained at the Conference. The Netherlands Indies is happy to be the country where these results have been obtained and we are deeply impressed by the fact that it has been possible for such a diversity of Eastern nations to co-operate so intimately that many tangible results now lie before us. Upon this fact may I be allowed to lay full stress. For it is only through such collaboration that further results can be obtained along the road upon which we have set our first steps. The remark was made by one delegate at this Conference that a chain is as strong as is its weakest link. In particular, this applies to the subject that has our attention. Only by unwearying collaboration between all Far-Eastern countries will it be possible to strengthen the weaker links, if such exist in our international work. In this regard, there must be no compromise. A special character of this Conference from the social aspect lies in its free and easy intercourse between all that have attended it. This has not failed to have a highly beneficial effect upon its proceedings. But still there is more to come. However arduous your task has been here, I feel convinced that it has been the easier part. It appears to me that it must have been relatively easy to satisfy fellow-delegates who are interested in the same subject as yourselves. On the other hand, it may be much more strenuous to convince people at home of the necessity and the urgency of enforcing the work you have at heart. A heavy tax may still be imposed upon your patience, your perseverance and your persuasion. May all countries be as ready as the Government of the Netherlands Indies to support the cause. Ladies and Gentlemen, in the name of the Governor-General of the Netherlands Indies, I wish you complete success in this particular aspect of your task, realising how beneficial its achievement m il be to mankind.

Professor C o r r e ia (Portuguese India) paid a tribute to the spirit of solidarity in which the various delegations had worked during the Conference, and to the share taken by the League of Nations in this collaboration. He thanked the Netherlands authorities for their hospitality and expressed his admiration of their colonising genius. The Netherlands occupation of the East Indies had for over a century past succeeded in ensuring for that territory an era of unprecedented peace and prosperity. Colonial studies had reached a considerable degree of advancement in university circles in those colonies and were of great value. After praising the admirable works published by Netherlands scholars in regard to religious, legal, ethnographical and social questions in the colonies, Professor Correia quoted an English writer who had said that it was only because they had learnt to understand and encourage the maintenance of native institutions that the Dutch had succeeded in their undertaking. In its essence, all the Netherlands colonial policy was nothing else than the official recognition of that principle, translated into practice by respect for aboriginal institutions and by the development of their country.

Mr. J o r d a n (Straits Settlements and Federated Malay Straits) enumerated the various ways !? which the Netherlands authorities bad shown hospitality and rendered assistance to the ° . ®rence« thus contributing largely to its success. He also paid a tribute to the able manner in . ch the President had conducted the proceedings and to the efficiency of the League officials m organising and carrying out the work. — 74 As one delegate had observed, the Conference was a milestone in the history of the problem of traffic in women and children. That was true for three main reasons. In the first place, it had been decided that the fullest co-operation should be maintained between the police and other authorities. It had been realised that all were allies fighting a common enemy. It was for that reason that the Conference had decided to recommend the creation of an Information Bureau. This decision was of the greatest importance, as such a Bureau would tend to grow in usefulness until it became the General Staff of the army fighting the traffic in women in the East. It was also true in view of the fact that all participating countries had described abolition as their ultimate goal. This signified the dawn of a new era in the East. In the third place, recognition had been given to the work of the private organisations, and this involved a promise of wider co-operation and understanding in the future. It was to be hoped that the milestone which the present Conference represented would point the way towards the goal where women would no longer be wronged, where children would be in security, and where all human beings would have the same value.

Mrs. Mu k e r j e e (India) expressed her appreciation of the hospitality of the Netherlands authorities and paid a tribute to the manner in which they combated the traffic in their own territory. In conclusion, she thanked the Social Section of the Secretariat of the League for its invaluable work.

Miss G u t h r ie (United States of America), on behalf of th e women’s associations, spoke in similar terms.

Prince S a k o l V a r a v a r n (Siam), on behalf of the delegations of Far-Eastern countries, warmly thanked the authorities and institutions of the Netherlands Indies, the President, the Secretary-General and the staff of the Conference for the work they had accomplished at Bandoeng, Quoting an expression used by Miss Shephard in one of her letters, he hoped that liberty and equality would be translated for women into the abolition of regulated prostitution and for children into the creation of a world in which it would be good to live. Kipling’s words, “ East is East and West is West, and never the twain shall meet ”, appeared to be less true as the outcome of this Conference, at which four or five Western Powers and three Eastern Powers had taken part with the greatest frankness. Moreover, the results obtained at Bandoeng were not so much theoretical as practical, and the delegates to the Conference would separate with a knowledge of what remained to be done, and with a feeling that they had not worked in vain.

Professor L a b r o u q u è r e (France) observed that, thanks to the work of the League of Nations and, in particular, of the present Conference, the problem of the traffic in women and children had passed from the plane of domestic law to that of international law. In France, attempts had been made for a long time to solve the question of child welfare and the system of regulation on the basis of the principles of French law alone, and it was only thanks to the spirit emanating from the resolutions of the League of Nations that the French Government had gradually arrived at the idea of abolishing the system of regulation. The Government had also placed itself on the international plane by working with foreign Governments, in order to find a solution of the problem raised by Russian women from the Far East. Professor Labrouquère recalled that the League of Nations had often been criticised for confining itself to generalities while forgetting that very wide solutions were not always the best for all countries. It was greatly to the credit of a Conference such as that of Bandoeng that it had dealt with a particular region, the Far East, and had considered, in accordance with League principles, means of improving the present situation by seeking to remedy much human distress. After the decisions of the Conference, it would be wrong to think that all difficulties were henceforward settled. It was now necessary for legislation and public opinion to be changed in all the countries represented at the Conference. Thus it was the duty of the French Governm ent to make new laws applicable in Indo-China to reflect the general tendencies that emerged from the Bandoeng Conference. The problem of the traffic, which had such sad social effects, was perhaps due to the fact that sufficient attention had not been paid to certain social classes. If one day a drastic change were made in the capitalist system, the lot of these unfortunate women and children might perhaps be considerably improved. At a time when there was a tendency to criticise the political action of the League, Professor Labrouquère would like to point out the lessons to be drawn from such a Conference as that of Bandoeng. Representatives of both Eastern and Western countries had met together for a fortnight around the same table to study social problems. They had reached a perfect understanding, which gave reason to hope that, if in the near future political questions divided the nations of the Pacific, they would nevertheless be able to find in international conferences held under the auspices of the League of Nations a field for common understanding. In conclusion, he thanked the Netherlands Government and the Government of the Netherlands Indies for the cordial welcome given to the foreign delegations. He also thanked the President, who had shown such tact and competence, the officials of the League of Nations, who, under the able direction of M. Ekstrand, had brought to the work of the Conference their full enthusiasm, and finally all the delegations, which had been willing to turn their attention for a fe w days to the problem of the traffic in women and children and to formulate proposals for arriving at a humane solution. — 75 —

M.-Sa m pa io (Macao), on behalï of the Portuguese delegation of Macao, paid a tribute to the Netherlands administration, which had done so much to facilitate the work of the Conference, and to the President, whose diplomacy and skill had so greatly contributed to the success of the work of the Conference and its committees. He also thanked M. Ekstrand and the staff of the League of Nations for the devotion with which they had co-operated in the Conference. Portugal, under the guidance of an enlightened statesman, was now resuming the place she had formerly occupied among the most progressive nations. He was convinced that, with the assistance of the League of Nations and in a spirit of altruism, practical results would be achieved which would bring the necessary solace to the human distress by which the Conference had been so much moved.

M. A k a g h i (Japan) said the delegations present, representing the competent authorities of Eastern countries, had met for the first time in the heart of the East to deal with the problem of the protection of young people against the evils which threatened them. The delegations had been enabled at Bandoeng to come in contact, both officially and personally, with the representatives of the central authorities and private organisations of other countries or towns which had hitherto had opportunities to get into touch only by means of communications. This fact alone was calculated to give good results. In addition, views had been exchanged, the real situation had been made clear and the general opinion had been expressed in the form of resolutions. He was glad of this and thought it was now the duty of all the delegations to work in each of their countries to enable those resolutions to lead to good results. The success of the Conference was due mainly to its President and its Secretary-General, to whom M. Akaghi paid the warmest tribute. He also thanked the Government of the Netherlands Indies and the municipality of Bandoeng for the generous hospitality which they had offered to the Conference.

M. Ch u (China) said the Chinese delegation was profoundly grateful for the results — which were not verbal but tangible — obtained by the Conference. A veritable crusade was to be undertaken against traffic in women and children and in favour of the emancipation of women. The progress would be gauged by the increased freedom and equality granted to women and the well-being enjoyed by children. The Chinese delegation joined in the thanks addressed to the Netherlands Government, the Government of the Netherlands Indies, the President and the Secretariat, who had all contributed in their different spheres to the success of the Conference.

The P r e s id e n t associated himself wholeheartedly with the tribute paid to the Secretary- General of the Conference and the members of the Secretariat. He thanked the delegates to the Conference, who, by their unfailing goodwill, had helped him to overcome the greatest difficulties. He observed that the members of the Conference, delegates, as they were, from very different and distant countries, but inspired by the sole desire of relieving human misery and building up a better world, had wrought something which was equal to their motives, equal to the possibilities of the moment and — if this were not saying too much — equal to what the world expected. This result was due to the goodwill and spirit of conciliation which had constantly reigned at the meetings of the Conference. The foundations had been laid for new activity, a wider social conscience, a vaster ideal and a better and cleaner world. Held, as it had been, among the peoples of the East, by representatives of the East and for the nations of the East, this Conference would remain a milestone along the lengthy road of the moral and social evolution of humanity. But he would not allude only to the formal results of the work. The Conference had not merely adopted fruitful resolutions, to which he hoped the Governments and organisations concerned would give all the attention they deserved, but it had prepared the ground with a view to closer co-operation between the central authorities. It had actively discussed the common interests of private organisations and had opened the way to a more efficient and confident co-operation between Governments and organisations with a view to fighting one of the major social evils that afflicted the world. But it had done even more. The delegations, with a broadmindedness, a moderation and a frankness which called for admiration, had held a general and public discussion on a most delicate and intricate question. They had dwelt on the borders between moral and official action and had thus, as several speakers had pointed out, contributed to the development of a more enlightened public opinion, which was indispensable for further action. For those achievements and successes, he heartily congratulated the Conference. That the delegations present had met, that they had found the matter under discussion so thoroughly prepared and the agenda so wisely drafted, that the work of the Conference would presently be carried to fruition, was the most convincing tribute to the activity of the League of Nations. It was the League which converted this Conference from an isolated and powerless fact mto a link in the even chain of events that slowly but surely carried humanity forward. The results obtained by the Conference were, moreover, not an end but a beginning, not a conclusion but a starting-point. It was therefore of importance now that the delegates should not lay down their duty but should take it up with new energy, new faith and new hope. It was his desire that each one, on leaving Bandoeng, would take home the certainty that he was not alone in the struggle, and that he had many friends all over the East who were one in thought with him. It was his hope that the ideal which had been taking shape in this hall might remain a living source °f inspiration. — 7 6 —

M. E k s t r a n d , Secretary-General, Director of the Opium Traffic and Social Questions Sections, said that the appreciation expressed by the President and the delegates for the work done by the Secretariat and himself was an encouragement to them. The work had been a real pleasure, thanks to the harmony and excellent atmosphere which had reigned throughout the Conference, for which all were indebted in particular to the President, the delegations and the collaborators appointed by the Government of the Netherlands Indies, to whom he expressed his sincere thanks. He also thanked the competent authorities for the perfect administrative arrangements, which had so greatly facilitated the task of the Secretariat. He thought the work accomplished by the Conference at Bandoeng was an excellent example of what the League of Nations was called upon to do and what it could do. Its task was to prepare the questions to be dealt with finally by the representatives assembled in conference in such a way as to render possible a thorough and useful discussion leading to definite results. During such conferences, the good offices of the officials of the League must be available at any and every moment, to give explanations and to help to bring about mutual comprehension and understanding. There lay an almost unlimited field of action for them. But, in another respect, they were limited. The League of Nations and its officials could not bring about what the participants in a Conference were not prepared to accept or to do. Whether the League could really become the instrument for international understanding and international action depended upon Governments and others responsible for the direction of the public opinion and the destinies of the peoples. Let the present Conference give to those who had been connected with it the conviction that the League could become such an instrument and the desire to work to that end. The Conference at Bandoeng would thus gain an importance far beyond the questions with which it had actually dealt. It was with the expression of this hope that he would take leave of all with whom he had had the privilege of working at Bandoeng.

The P r e s id e n t declared the Conference of Central Authorities in Eastern Countries closed. AMEX 1. Conf./C.T.F.E./Orient 12.

RULES OF PROCEDURE OF THE CONFERENCE. Adopted on February 2nd, 1937.

Article 1. 1. The Conference consists of : The delegations appointed : (a) By the Governments invited to the Conference ; (b) By the missions and the international voluntary organisations whose participation was agreed upon by the Governments concerned ; (c) By the national, regional or local organisations proposed by the participating Governments in whose territory they operate ; Any experts whose participation has been requested after consultation with the Governments concerned or who have been invited by the Conference. 2. Each delegation is composed of one or several delegates, who may be accompanied by substitute delegates, advisers and secretaries. 3. Any delegate or representative to whose admission objection has been made shall sit provisionally with the same rights as other delegates or representatives, unless the Conference decides otherwise. 4. The participation of the representatives of international voluntary organisations, of missions, of national, regional or local organisations and of experts will be of an advisory character. They are not entitled to vote. Article 2. The bureau of the Conference shall consist of the President of the Conference, one Vice-President and any other members called upon by the Conference to serve as members of the bureau. Article 3. The President opens, suspends and closes the meetings. He submits to the Conference all communications the importance of which appears to justify this measure ; ensures the observation of the rules of procedure ; accords the right to address the Conference ; pronounces the closure of discussion ; puts questions to the vote and announces the result of the voting.

Article 4. The Conference may at any time decide to sit in plenary conference or constitute itself as a committee or set up sub-committees. Article 5. All meetings of the Conference shall be public unless a decision is taken to the contrary. Decisions taken at private meetings shall be announced at a public meeting. The special committees and sub-committees shall decide whether their meetings will be public or private.

Article 6. 1. No delegate may address the Conference without having previously obtained the authorisation of the President. The President may withdraw the permission to speak. 2. In the course of the discussion of any question, any delegate may raise a point of order, which shall im m ediately be decided. 3. Representatives of international voluntary organisations, of missions, of national, regional or local organisations, advisers and experts are allowed to speak under the same conditions as the delegates. Article 7. 1. Speeches in French shall be interpreted into English and vice versa by an interpreter belonging to the Secretariat. 2. A delegate speaking in another language must himself provide for a translation of his speech into French or English. Article 8. A Government delegate may at any time request that the debate be closed. The President shall take the opinion of the Conference upon the motion of closure. If the majority of the Government delegates approve the motion, the President shall declare the closure of the debate.

Article 9. Each Government represented shall have one vote.

Article 10. At the conclusion of each meeting, records shall be prepared by the Secretariat and circulated 0 delegates as soon after as possible. ANNEX 2 . Conf./C.T.F.E./Orient 23.

CREATION OF AN INFORMATION BUREAU IN THE EAST : REPORT OF THE SUB-COMMITTEE.

Rapporteur: Mr. J o r d a n (Straits Settlements and Federated Malay States).

Bandoeng, February 4th, 1937.

The Sub-Committee of the Conference appointed to consider the suggestion for the formation in the Far East of an Information Bureau to combat the traffic in women and children in the East met in the Conference Committee room at 5 p.m., on February 3rd, 1937. The following Governments were represented :

Mr. A. B. J o r d a n (Straits Settlements and Federated Malay States) ; M. H o C hing Ch e n (C hina) ; Professor A. P. R. L a b r o u q u è r e (France) ; M. Chikayuki A k a g h i (Japan) ; M. H . G r o e n e v e l d t (Netherlands) ; Prince Sakol Vamakara V a r a v a r n (Siam).

M. Co e r p e r , the representative of the International Criminal Police Commission, was present in an advisory capacity. M. Groeneveldt was appointed Chairman of the Sub-Committee and I had the honour to be appointed Rapporteur. The Committee was in favour of the principle of establishing a Bureau in the Far East for the exchange by all participating countries of information in regard to traffic in women and children. The Sub-Committee was not in a position to express an opinion as to where in the East the Information Bureau should be situated, but considered it essential that any such Bureau should be placed under the League of Nations and run on similar lines to the League of Nations Eastern Bureau at Singapore. The Sub-Committee considered that this Information Bureau should receive regular reports from all participating countries in regard to convictions for traffic in women and children and that the Bureau should transmit to all participating countries the reports that it received, such reports being held to be confidential and not to be published outside the official circles of the countries concerned. The Sub-Committee advised that the Bureau should receive and should distribute information concerning the following four classes of individuals : (1) Men and women convicted of offences for trafficking in women and girls ; (2) Men and women convicted of offences of trafficking in children ; (3) Men and women deported or banished from the territories of participating countries for offences like those set out under heads (1) and (2), but whose conviction in court has been impossible for some good reason, but whose guilt had been established to the satisfaction of the Government concerned ; (4) Men and women who are wanted in connection with offences like those set out in heads (1) and (2), but who have made their escape before the warrant of arrest issued against them can be executed. With regard to each man and woman whose name is sent by the Government of a participating country to the Information Bureau, it is desired that the following data should be given : (1) Full name and any known aliases ; (2) Sex—male or female ; (3) Age ; (4) Birth-place ; (5) Nature of offence for which the conviction has been obtained, or on account of which the man or woman has been deported or banished, together with the length of any sentence of imprisonment the person is serving for this offence ; (6) Photograph of the culprit ; (7) Finger-prints of the culprit, if available. (Signed) A. B. J o r d a n . — 79 —

A M E X 3.

SELECTED STATISTICS OF VENEREAL DISEASES AND THEIR TREATMENT.

A. BRITISH MALAYA.

(Statistics submitted by Mr. A. B. J o r d a n , Secretary for Chinese Affairs. February gth, 1937.)

Table I. — Treatment of Women in the Straits Settlements.

New cases Re-attendances Total for Singapore Total for Singapore Straits Settlements only Straits Settlements only 1932 ...... 2,484 1,046 13,023 4,376 1933 ...... 2,763 795 14,315 5,626 1934 ...... 2,308 590 ix,208 4,206 1935 ...... 1,926 539 9,009 3,358 1936 ...... — 651 — 4,146

Table I I . — Total New Cases (Men and Women) treated at Centres in Singapore.

1932 1933 1934 1935 1936 Syphilis . . . . • 5,306 4,287 3,4 H 3,43i 2,755 Soft chancre . . . 4,009 2,223 1 , 5 2 4 i , i 5 3 2,068 Gonorrhoea . . - • 3,462 2,622 2,275 2,564 3,870 O th ers1 . . . • • 3,195 2,829 2,496 2,818 2,738

15,972 11,961 9,706 9,966 i i , 43i

Table I I I . — Female Cases in the Federated Malay States.

Perak Selangor Negri Pahang Total Sembilan Federated Malay States 1931...... 1,231 1,035 i ,493 198 3-957 1 9 3 2 . • ...... 1,409 1,019 1,607 331 4,366 1 9 3 3 . ■ ...... 1,008 997 1,307 349 3,661 1 9 3 4 - • ...... 764 1,125 900 291 3,080 1 9 3 5 . ■ ...... 543 1,114 625 374 2,656 1 9 3 6 ...... 424 1,005 869 334 2,632

Table IV . — Malaya •Command. Venereal Disease amongst European Troops in Garrison in Singapore.

Annual ratio per 1,000 Before closing of brothels After closing of brothels 1 9 2 2 ...... 202.9 I 93I 62.0 1 9 2 3 ...... 91.1 1932 42.7 1 9 2 4 ...... 1933 39-6 1 9 2 5 ...... 65.2 1934 48.6 1 9 2 6 ...... 103.7 1935 65.24 1 9 2 7 ...... 1x6.1 1936 77.19 1928 .... 1 9 2 9 ...... 54-9 1 9 3 0 ......

1 Includes combined infections, lympho-granuloma, etc. B. INCIDENCE OF VENEREAL DISEASES IN THE NETHERLANDS INDIES ARMY.

I. Europeans.

25 25 24 23 23 22 22

20 20 19 19

17 16 1 5 14 13

lO •«I X/

!903 04 05 06 07 08 09 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 23 29 30 31 32 33 34 1935 5.0.N.7S76 A : Gonorrhoea. B : Soft chancre. C : Syphilis.

n. Non-Europeans.

A : Gonorrhoea. B : Soft chancre. C : Syphilis. — 8i —

ANNEX 4 .

REPLIES OF GOVERNMENTS TO THE QUESTIONNAIRE REGARDING RECENT DEVELOPMENTS IN EASTERN COUNTRIES.

These answers were received on the dates stated and were submitted to the Conference under the following document numbers : I. United Kingdom (Straits Settlements and Hong-Kong). Conf./C.T.F.E./Orient 6. II. China. Conf./C.T.F.E./Orient 8. III. France (Indo-Chinese Union). Conf./C.T.F.E./Orient 26. IV. India. Conf./C.T.F.E./Orient 7. V. Iraq.1 VI. Japan. Conf./C.T.F.E./Orient 13. VII. Netherlands (Netherlands Indies). Conf./C.T.F.E./Orient 5. VIII. Portugal (Portuguese India). Conf./C.T.F.E./Orient 31. IX. Macao. Conf./C.T.F.E./Orient 27. X. Siam. Conf./C.T.F.E./Orient 20.

QUESTIONNAIRE.

Replies to the questionnaire regarding the agenda of the Conference of Central Authorities in Eastern Countries should cover changes and developments that have taken place since the end of 1931 — i.e., since the Commission of Enquiry into Traffic in Women and Children in the East concludes its investigations. In the replies to Part II regarding points on the agenda of the Conference, it would be valuable to have information as to whether the immediate steps recommended by the Commission of Enquiry2 have been taken, whether they are under consideration or whether such measures are considered inapplicable in consequence of changes and developments since 1931.

I. General Questions with regard, to the Changes in Traffic in Women and Children since 1931.

1. Has the trend of traffic in women and children for immoral purposes to or from or through the territory under consideration undergone any change ? If so, in what direction ? 2. Has the volume of such traffic in women and children for immoral purposes increased or decreased since 1931 ? 3. Can you give any reasons for the changes indicated in the replies to the above questions (such as the repercussions of the economic depression, etc.) ? 4. Can you give, with regard to recent changes in traffic in women and children for immoral purposes, any other inform ation of general interest not covered by the above questions ?

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1. — Closer collaboration and wider exchange of information between the police and other authorities in the different countries who are responsible for measures concerning the prevention of traffic in women and children in the East. (a) State name and address of central authority3 and of any police or other authorities who are responsible for measures concerning the prevention of traffic in women and children. (b) State whether direct communications (without reference to diplomatic methods of communication) are established between the authorities mentioned under (a) and similar authorities in other countries in the East. (c) If such communications have been established, describe their character. (d) Have any special difficulties been encountered in the carrying-out of measures of co-ordination between the competent authorities ? (e) Can you indicate any particular type of co-operation which has proved especially effective ? . . . (f) What further measures, if any, are you contemplating ?

* This document was not distributed to the Conference and has therefore no number. . See pages 38-41 of the Summary of the Report to the Council of the Commission of Enquiry into Traffic 11 Women and Children in the East (document C.T.F.E.606). , By the term " central authority ” is to be understood the “authority charged with the co-ordination of h! form ation relative to the procuring of women or girls for immoral purposes abroad ”, within the meaning the 1904 International Agreement for the Suppression of the White Slave Traffic.

6 Question 2. — Migration, in so far as this question affects the protection of migrants against traffic in women and children. (a) Can you indicate any provisions in laws, decrees or regulations adopted since 1931, bearing on protection against traffic in women and children, with special reference to the following points : (i) Passports and visas ; (ii) Supervisory measures at ports of embarkation and disembarkation and land frontiers ; ( in ) Supervisory measures during the journey ; (iv ) Control of employment agencies ; (v) Any other measures preventing traffic in women and children during migration?

(b) Have any measures been taken to oblige foreign women engaged in prostitution to leave the country (deportation, repatriation) ? (c) To what extent have these laws, decrees and regulations proved effective in their practical application, and to what extent do you consider traffickers find means of evading them ? (d) What further measures do you propose to adopt with regard to the protection against traffic in women and children during migration ?1

Question 3. — Closer collaboration between police and other authorities and private organisations in the East. (a) To what extent has collaboration between police and other authorities, on the one hand, and missions and private organisations, on the other, developed since 1931, with regard to direct or indirect methods of combating traffic in women and children ? (b) Has any attempt been made to allow voluntary organisations to assume official or semi-official functions ? If so, please give details. (c) Is any further development of collaboration between authorities and private orga­ nisations under consideration ?

Question 4. — Possibility of employment of a larger number of women officials by the authorities responsible for the welfare of women and children. (a) To what extent and in what capacity are women officials employed ? (b) What has been your experience with regard to the employment of women officials since 1931 ? In what direction do you consider their work is most effective ? (c) What steps are being considered for the future ?

Question 5. — Possibility of abolishing licensed or tolerated brothels inthe East. (a) Have any new laws, decrees or regulations come into force since 1931, directly or indirectly dealing with the question of tolerated or licensed brothels ? (b) If tolerated or licensed brothels still exist in the territory under consideration, has there been any increase or decrease in their number ? Has there been any change in the number of prostitutes ? (c) If tolerated or licensed brothels have been abolished, or are in course of abolition, w h a t measures have been adopted for this process ? Have you any observations to make with re g a rd to the experience gained in this connection ? (d) Are you considering any new policy in connection with the abolition of tolerated or licensed brothels ?

Question 6. — Problem of women refugees of Russian origin in the Far East who have become or are in danger of becoming victims of the traffic.2 (a) Have any women of Russian origin entered the territory under consideration since 1931 ? Has there been any increase or decrease in the total number of such women residing in this territory? (b) What is the approximate number of women of Russian origin residing in the territory under consideration who have become prostitutes, or who are in danger of doing so ? (c) Have you any observations to submit as to new developments with regard to the m a te r ia l and moral situation of these women, or any suggestions to offer for the solution of this problem ?

* * *

1 State your view, more particularly with regard to the following points contained, inter alia, in the recommendations of the Regional Conference held at Hong-Kong on July 2nd, 1935, to consider the q u e s tio n of combating the traffic i n women and children in the Far East, as far as they apply to the territory u n d e r consideration : Extension of examination of female immigrants to cover short-voyage passages and ships carrying a small number of passengers but not enough to necessitate a passenger certificate ; Instruction to police officers on anti-piracy duties to keep a watch for apparent cases of trafficking in women in outgoing ships. * A number of Governments and voluntary organisations have submitted information up to 1934-,aS summarised in the document on Position of Women of Russian Origin in the Far East (A.12.1935.IV). This fact should be taken into consideration in answering this question, in order to avoid duplication of inform ation. - 8 3 -

REPLIES OF GOVERNMENTS.

I. United Kingdom.

A . S tr a its S e t t l e m e n t s.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. There is no traffic in women and children from or through Malaya. Any traffic that exists continues to be from abroad to Malaya. 2. This traffic has decreased since 1931. 3. The sex ratio for Chinese in Malaya is tending gradually towards equality. This affects traffic in prostitutes in two ways : first, more locally bom Chinese women take to prostitution, leaving less demand for prostitutes from China; and, secondly, more Chinese men in Malaya are married, so that there is less demand for prostitutes altogether. The working of the Aliens Ordinance since the beginning of 1932 has made the examination of passengers easier and more effective, and has therefore made trafficking more difficult and risky. 4. No.

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1. (a) The central authority is the Secretary for Chinese Affairs, Malaya. The authorities responsible for measures concerning the prevention of traffic in women and children are the officers of the Chinese Protectorate stationed in each settlement of the colony, in each of the Federated Malay States, and in Johore and Kedah. (b) Direct communications are established with the Secretary for Chinese Affairs, Hong- Kong. (c) The Secretary for Chinese Affairs, Hong-Kong, reports cases of women and children leaving Hong-Kong for Malaya, if he considers further enquiry is desirable. The Secretary for Chinese Affairs, Hong-Kong, meets women and children repatriated from Malaya, if requested to do so by this Government, and arranges for their welfare. (d) No. (e) The “ listing ” of women passengers between Hong-Kong and Malaya is an effective check on traffic. When the authorities in Hong-Kong suspect trafficking they send their information to Singapore, thus assisting the officials who examine immigrants in Singapore. (f) None.

Question 2. (a) Under the Aliens Ordinance, 1932, the Immigration Officer may prohibit the landing in Malaya of any alien woman whom he suspects to be a prostitute or of any person whom he suspects to be a trafficker. In the report of the League of Nations Commission to enquire into the traffic in women and children in the East, at page 278, attention was drawn to a system favoured by Chinese traffickers who stated on arrival in Singapore that they were transit passengers bound for the Residency of Riouw or one of the other islands of Netherlands India that are situated close to Singapore. To close this loophole in the defences of Malaya and Netherlands India against the trafficker, the Government of the Straits Settlements has since April 1st, 1934, undertaken under the Aliens Ordinance, 1932, and the Women and Girls Protection Ordinance, 1930, the examination of all female immigrants entering or landing in the colony from Netherlands India. This examination was at first performed by officials on the Chinese Protectorate but has, since May 1936, been carried out by the staff of the Immigration Office. (b) No. (c) Traffickers usually pretend that their victims are relatives. The examination of immigrants is effective in detecting cases generally, though doubtless the traffickers succeed in deceiving the examining officer sometimes. (d) Further measures are not proposed. All ships carrying any aliens, however few, are examined by the Immigration Officer on arrival.

Question 3. (a) There are no missions or private organisations combating the traffic in women and girls. (b) and (c) No. - 8 4 -

Question 4 . (a) The following women are employed in connection with the welfare of women and children : Lady Assistant Protector of Chinese, Singapore ; Lady Inspector, Singapore ; Lady Assistant Inspector, Penang ; Lady Assistant Inspectors (part-time), three : one in Perak, one in Selangor and one in Negri Sembilan. The Po Leung Kuks, or homes where victims of traffic and other women and girls needing protection are sent, are entirely staffed by women. (b) Where the right type of woman official is found, she is able to obtain the confidence of victims more easily than can be expected of a male official. (c) None.

Questions 5 and 6. These questions do not apply to Malaya.

B . H o n g -K o n g .

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. There can be little change as regards traffic between Hong-Kong and Chinese ports with Macao, there being no passport or other formalities required with persons of Chinese race.1 It is believed that traffic from Hong-Kong to the South Seas has practically ceased. 2. See above. 3. The closing of tolerated houses in Hong-Kong and Malaya, together with the fact that, at the examination of deck passengers at the Secretariat for Chinese Affairs,1 known prostitutes are not now allowed to proceed abroad, has been responsible for the decrease.The economic depression in Malaya has possibly been a contributing factor. 4. No.

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1. (a) (1) The central authority is the Inspector-General of Police ; (2) the Secretary for Chinese Affairs. (b) Yes. (c) To cite two cases as examples, a communication was sent to the Commissioner of Police at Canton on April 6th, 1936, forwarding information received concerning a suspected agency for sending girls to this colony from Swatow. On August 12th, 1936, a communication was sent to the Commissioner of Police, Macao, with reference to two girls who had been sent back from Annam after having been enticed away there by a Macao woman. Information concerning trafficking is communicated as a matter of routine by the Secretary for Chinese Affairs, Hong-Kong, to the Secretary for Chinese Affairs, Malaya, and vice versa. (d ), (e) and (f) No.

Question 2. (a) (i) The Immigration and Passports Ordinance No. 8, of 1934. Parts II and III. (a) (ii) The Immigration and Passports Ordinance No. 8, of 1934. Part I. The Registration of Persons Ordinance No. 3, of 1934. (a) (in), (iv) and (v) Nil. (b) Foreign women who are not British subjects and who commit any offence under Ordinance No. 4, of 1897, Protection of Women and Girls, are sent away from the colony. Since 1931, the following women have been expelled from the colony : 5 French, 3 R ussians, 1 American, 1 Nicaraguan, 20 Japanese and 10 Koreans. Since 1931, the following males have been expelled from the colony : 2 Corsicans, 1 Pole, 3 Japanese. (c) The present regulations keep the traffic in check. No doubt they are evaded, b u t considerable curb is put on the activities of traffickers whose main weapon seems to be the consent of the victims. (d) No measures were taken or are contemplated pending the outcome of the forthcoming Conference, with the exception that police officers on anti-piracy duty were given instructions to keep a watch for cases of trafficking.

1 See : Commission of Enquiry into Traffic in Women and Children in the Esst ; Report to the Council (document C.849.M.393.1932.IV), pages 169 and 175. - 8 5 - Question 3. (a) Close collaboration has always existen betwed the police and the Secreary for Chinese Affairs. The Scoiety for the Protection of Children and the Salvation Army bring to the official notice any cases with which they come into contact. (b) The Po Leun Kuk, the Salvation Army and the Victoria Home and Orphanage assist in “ rescue " work and the first named is used as a place for the temporary detention of victims of traffic. Two Salvation Army female officers act as probation officers to the juvenile courts. (c) No.

Question 4. (a) Two Salvation Army female officers act as probation officers in the juvenile courts. Two Chinese ladies act as inspectors of Mui Tsai. The Anti-Piracy police staff includes twenty-two female searchers who have instructions to watch for cases of trafficking on ships. (b) The work of the probation officers and of the lady inspectors of Mui Tsai has been very satisfactory in their particular spheres. (c) None.

Question 5. (a) Such establishments are not either licensed or tolerated. Provisions dealing with them are to be found in the Protection of Women and Girls Amendment Ordinance, No. 25, of 1936. (b) There are no licensed or tolerated brothels in Hong-Kong. (c) and (d) Do not arise.

Question 6. (a) Residing in the colony in 1931...... 52 Entered s in c e ...... 102 Left ...... 74 R e m a in in g ...... 80 Increase...... 28 (b) It is believed that four women of Russian origin, residing in Hong-Kong, have become prostitutes. (c) Women of Russian origin who enter this colony are all under guarantee of employment or suitable means of subsistence. Those of inadequate means of support or of known bad character are not allowed to enter.

II. China.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. No change in policy, but, owing to the strict measures adopted, it has become more difficult for traffickers to succeed in their attempts. 2. As a result of the economic depression, there has been a slight increase in the number of cases of traffic. 3. See replies to questions 1 and 2. 4. No.

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1. (a) The Ministry of the Interior is the central authority responsible for preventing traffic in women and children. The other responsible local authorities are the police services of the various provincial, municipal or district governments. (b) No.

Question 2. (a) All the local authorities have their own special regulations regarding protective measures, covering the points mentioned in the question. (b) Foreign prostitutes in China usually live in the Concessions, from which the Chinese Government cannot expel them. The Chinese Government has not as yet promulgated any regulations obliging these foreign women to leave the country.

Question 3. (a) There is a certain amount of collaboration between police and other authorities, on the one hand, and missions and private organisations, on the other. (b) Some assistance is given by women’s associations registered with the authorities, (c) Yes. 8 6 — Question 4. (a) The number of women officials is very small. (b) Experience shows that women officials are conscientious, but, owing to their lack of physical strength, they are best fitted to carry out comparatively simple duties which do not call for endurance.

Question 5. (a) No. (b) In principle, licensed or tolerated brothels are prohibited under Chinese law.1 (d) No.

Question 6. Although the number of women refugees of Russian origin in China has increased, they nearly all live in the Concessions, and the Chinese Government is not in a position to furnish definite information regarding them. The particulars it has been able to obtain were communicated to the League and reproduced in document A.V/5.1935. Since then, an enquiry has revealed the fact that, towards the end of 1935, there were thirty-six women refugees of Russian origin in Shanghai outside the International Settlement and the French Concession. They are employed as waitresses in restaurants or cafés, but most of them are occasional prostitutes. As they often change their address and live in the Settlement or the Concession, the number of these women varies constantly, but is never very large.

III. France.

I n d o -Ch in e s e U n io n .

I. General Questions with regard to Changes in the Traffic in Women and Children since 1931.

1. The traffic in women and children in Indo-China has always been closely watched by the administrative authorities. As a result, it is gradually disappearing, and the departments concerned in its suppression have only occasional cases to report. 2. The number of cases of such traffic is smaller each year, except in Tonkin, where a slight increase has been reported. 3. No. Owing to the extreme rarity of cases, it is difficult to determine their causes. 4. The few cases detected are invariably cases of action by isolated individuals. There are in Indo-China no organisations specialising in traffic in women and children for immoral purposes.

II. Special Questions regarding Points on the Agenda of the Conference. Question 1. Local police authorities centralise all the information relating to traffic in women and children and forward it to the Government (Police Department). The latter forwards detailed information concerning cases of traffic, through the Colonial Department, to the Ministry of the Interior in Paris, which collates the information specified in Article 1 of the 1904 International Agreement. (a) Preventive measures are in the hands of the local judicial authorities, both French and native. The two Central Prosecutors’ Departments at Hanoi and Saigon supervise the activities of the public authorities and give special attention to the prevention of this traffic. The Political and Police Directorates of the Government at Hanoi act as a clearing-house for information and requests which may have to be forwarded to foreign Governments. (b) The case has not yet arisen. It would appear desirable for the Conference to consider the possibility of adopting a simple procedure in this respect. (f) Nil.

Question 2. (a) The existing regulations relating to the departure of natives from Indo-China require them to be provided with a passport or identity document, which is only delivered after exhaustive enquiry into the morals of the applicant. This system provides adequate safeguards against immoral traffic. The search and control units dealing with immigrants in the ports of Saigon and Haiphong are on the watch for any clandestine traffic in women and children. Any suspicious immigrants are subjected to enquiry. The Ships Examination Service advises the Service des mœurs of departures and arrivals of registered prostitutes. The Decree of August 31st, 1932, laying down the conditions of admission and sojourn for French and foreign nationals in Indo-China, strengthens the previous provisions in this respect. Owing to the very severe conditions required of both French nationals and subjects of other countries before permission to land or remain in Indo-China is granted, any clandestine landing or embarkation of women or children is virtually impossible. (b) No foreigners engaged in prostitution have been expelled, since no such cases have occurred in Indo-China.

1 See docum ent Conf./C.T.F.E./O rient 3, page 19. - 8 7 - (c) The measures in force, by providing for the rigid supervision of all immigrants, permit of effective prevention. No possibility of evading these measures would appear to exist. (d) Nil.

Question 3. (a) In Cochin-China, a semi-official Mutual Association for Social Assistance has been set up by an Order of the Governor, dated October 14th, 1929, and amended on July 1st, 1935. This association, which pursues a large number of objects, has organised a Home for the Moral Rehabilitation of Girls, at Thuduc, under the management of the Sisters of St. Vincent de Paxil. (b) Minors detected in the act of plying as prostitutes, or arrested in police raids, and found to be without means of subsistence are sent to the above-mentioned institution, where they are taught bookbinding, basket-making and household work. At the present time, twenty-five minors are being trained in this way and will be found positions as soon as their rehabilitation is judged to be complete. . . . . _ ,, . (c) Collaboration between public authorities and private organisations in this field is wholehearted, wherever special bodies have been set up. . . . Moreover, a large number of local charitable organisations contribute indirectly to the protection of women and children.

Question 4. (a) The need for employing women officials has not so far arisen. (b) Nil.

Question 5. (a) In Cambodia, licensed brothels are regulated by an Order of February nth, 1933. In Cochin-China, the Orders of July 26th, 1933,, and January 27th, 1934, specify the quarters in the towns of Cholon and Saigon outside which licensed brothels may not be opened or kept. The Decree of September 20th, 1933, applying to Indo-China Article 1 of the Law of December 27th, 1916, which increases the penalties inflicted upon persons living on prostitutes earnings, was promulgated by Order of the Governor-General on October 19th, 1933- _ A further Order of November 27th, 1935, completes the permanent regulation of this question. No further legislative steps have been taken in this connection in other parts of the Indo- Chinese Union as regards th e control of licensed brothels. (b) The number of licensed brothels in Pnom-Penh has fallen from 14 in 1934 to n in 1935 and 8 in 1936, in relation to a population of 100,000. At Saigon, there are now only 10 licensed brothels, against 22 in 1931. At Kwangchow-Wan, the number of prostitutes had fallen from 400 in 1931 to 160 in December 1936. There has also been a drop in the number of prostitutes in Tonkin. (c) Abolition has not so far been decreed. . . . (d) The question has been closely studied in the chief centres, especially in Saigon and Cholon, but it has not yet proved possible to come to a final decision.

Question 6. (a) Only a small number of Russian women, mainly dancers, have visited Indo-China for short periods and for the sole purpose of giving dance performances. Such foreign women can only enter the colony if they can produce a passport bearing the visa of a French consulate and if they have secured permission from the Government, which is only granted if favourable information is received from the consuls of their countries of residence. The measure laid down in the Decree of August 31st, 1933—i-e., the obligation to deposit a surety and supply a copy of the police record and a medical certificate—would in any event, as already indicated, prevent their entry into Indo-China for immoral purposes. (b) Nil. . (c) The problem of Russian prostitutes in Indo-China does not exist.

IV. India.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

Question 1. Madras. — There is no international traffic in women and children in this Presidency. Bombay. — External traffic of women to Bombay City has always been practically non-existent. Internal traffic also is negligible and has decreased in Bombay City since the provisions of the Bombay Prevention of Prostitution (Amendment) Act XII, of 1930, came into operation in August 1931. United Provinces. —- The majority of districts in the United Provinces report that there has been no appreciable change in the traffic in women and children during the last five years. These reports, however, are based on the figures of cases reported to the police, which have remained fairly constant. Recent arrests of gangs of kidnappers, and the recovery of women and children — 88 — of the United Provinces, have discovered the fact that, in many instances, no reports of any kind were made to the police and, in other cases, the facts have been distorted by the relatives of the victims. It is impossible to say with any certainty, therefore, whether the trend of this traffic has changed, but there is reason to suspect that the export of women and girls from the United Provinces towards the Punjab, Sind, etc., has increased. It may be pointed out, however, that the women and girls are not, in the great majority of cases, sold into prostitution, but into marriage. The disparity in the numbers of the sexes in the north-western provinces of India and the large sums of money to be made are responsible for this traffic. Agencies for this purpose exist in a number of the larger cities and in some western districts, but enquiries have shown that women, girls and widows have nearly always been willing parties and eventually find happy homes. Punjab. — So far as it is known, there has been no change in the trend of the traffic in women and children in the Punjab. Burma. — There has been no marked change in the trend of traffic in women and children for immoral purposes in Burma. Bihar. — There is no traffic in women and children from Bihar to countries outside India' Central Provinces. — There is little or no organised traffic in women and children to, from, or through these provinces. Orissa. — There is no organised traffic in women and children for immoral purposes in this province. Sind. — The traffic from Arabia and Persia has, on the whole, decreased. North-West Frontier Province, Delhi. — Reply in the negative.

Question 2. Punjab. — The statistics for offences connected with this traffic, which, in the Punjab, relate very largely to the abduction of women for sale as wives, usually with their own consent, show that there has been no material change in its volume. Burma. — The traffic in women and children for immoral purposes has increased in Burma since 1931. North-West Frontier Province. — There is no conspicuous fluctuation. Sind. — The volume of traffic in women and children for immoral purposes has decreased since 1931. Delhi. — There has been no noticeable change.

Question 3.

United Provinces. — See answer to question 2. The Superintendent of Police, Naini Tal, reports that the provision of the Naik Girls’ Protection Act of 1929 has, to a very large extent, crippled what used to be a regular traffic in women from that district. Burma. — The reason for the increase in the traffic in women and children for immoral purposes is certainly economic. Sind. — The decrease is to be attributed to greater vigilance in launching prosecutions under the Prevention of Prostitution Act.

Question 4. Punjab. — During the current year, the activities came to light of an inter-provincial gang, consisting of Banjaras Rajputs from the United Provinces and Bazigars from the Punjab who worked a system of organised kidnapping of children of both sexes—generally children of low caste—but not for the purpose of prostitution. Sind. — Two procurers from Persia were convicted and sentenced to three years’ and seven years' imprisonment respectively, in 1934, and this had a deterrent effect on the trade. Madras, Bombay, Bengal, United Provinces, Burma, Bihar, Central Provinces, North-West Frontier Province, Delhi.— Reply in the negative.

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1 : (a). Madras. — The central authority is the Commissioner of Police, Madras City. The name of the present incumbent of the post is Mr. J. Elliott. Bombay. — The Secretary to the Government, Home Department, has been appointed as the central authority for this Presidency. The appointment is at present held by Mr. J. B. Irving. The Commissioner of Police, Bombay, is responsible for measures concerning the prevention of traffic in women and children in Bombay City. The name of the present incumbent of the post, who holds it in an officiating capacity, is Mr. J. W. Rowland. The Permanent Commissioner of Police is Mr. W. R. G. Smith. - 89 - Bengal. — The central authority is the Commissioner of Police, Calcutta. United Provinces. — No central authority has been charged with the co-ordination of all information relative to the procuring of women or girls for immoral purposes abroad. Such questions are at present being dealt with by the Police Department of the Government of the United Provinces, in consultation with the Judicial and Education Departments. The Education Department has been charged with the duty of administering the United Provinces Suppression of Immoral Traffic Act, the Naik Girls’ Protection Act and the Minor Girls’ Protection Act ; and the Police Department with criminal offences under the Penal Code in connection with traffic in women and children. Punjab. — A letter from the Government of the Punjab states that “ these questions appear to be for the Government of India. The Govemor-in-Council has no suggestions to offer.” Burma. — The only authorities responsible for measures concerning the prevention of traffic in women and children are the police and the Vigilance Society. Bihar. — There is no central authority specifically established for this purpose. Central Provinces. — It has not been considered necessary to establish authorities of the type mentioned in this question, owing to the almost entire absence or negligible extentof such traffic. North-West Frontier Province. — This is not considered a question for the Government of the Province. Sind. — The ordinary police force is responsible for measures concerning the prevention of traffic in women and children. Delhi. — The report of the Government states that “ there is no reason to believe that Delhi is a centre for traffic in women in the East, and there is no evidence that foreign women are brought here for purposes of prostitution. There are, of course, a number of brothels in the city, but the majority of the women who live in them are permanent residents. It is therefore impossible to give any information of value in respect of II, questions i, 2, 3 and 4.”

Question 1 : (b).

Bombay. — There has hitherto been no opportunity for the central authority of this Presidency to correspond with central authorities in other countries. United Provinces. — The Government enters, where necessary, into direct communication with other provincial governments and with the Government of India. Sind. — So far as Karachi is concerned, direct communications are established. Madras, Bengal, Burma, Bihar, Central Provinces, North-West Frontier Province, Orissa. — Reply in the negative.

Question 1 : (c), (d), (e) and (f).

United Provinces. — The communications are ordinary communications between Governments. The question of closer collaboration is under consideration. Punjab, Delhi. — See answer to II, question 1 (a). Madras, Bombay, Bengal, Burma, Bihar, Central Provinces, North-West Frontier Province, Orissa. — Reply in the negative.

Question 2 : (a).

Madras. — No new legislation has been undertaken since 1931. Bombay. — In accordance with Foreign Office circular No. S.6675, dated May 8th, 1934, British consuls abroad generally make previous references to the Government of India before visas for India are granted to theatrical or circus artists, whether male or female. On receipt of a reference from the consul, the Government of India consults the local government, which consults the Commissioner of Police, Bombay. If the same procedure were adopted by British consuls abroad in respect of all women of foreign nationality regarding whom doubt may exist whether they propose to visit India as theatrical artists, as private employees or as tourists, it would be easier to prevent the entry of foreign prostitutes into this country. Punjab. — See answer to II, question 1 (a). Bihar. — See answer to I, question 1. Central Provinces. — No such action has been considered necessary. Orissa. — See answer to II, question 1 (a). Sind. — A strict watch is kept on passports and visas. There is no export of Indian women to other countries from the port of Karachi. Delhi. — See answer to II, question 1 (a). Bengal, United Provinces, Burma, North-West Frontier Province. — Reply in the negative.

L — 90 —

Question 2 : (b).

Madras. — There are no foreign women engaged in prostitution in Madras City. Bombay. — With the closing of the brothels in Bombay City in 1931, European prostitutes left the foreign tolerated area and spread to localities not previously used by prostitutes. No special measures were taken to oblige them to leave the country. Bengal. — Occasionally undesirable women of this type have been deported under the Foreigners Act, but on grounds other than that of prostitution. Punjab. — See answer to II, question 1 (a). Bihar. — See answer to I. Central Provinces. — No such action has been considered necessary. United Provinces, Burma, North-West Frontier Province. — Reply in the negative. Orissa. — See answer to I.

Question 2 : (c) and (d ).

Bombay. — See answer to II, question 2 (a ). Punjab. — See answer to II, question 1 (a). Bihar. — See answer to I, question 1. Central Provinces. — No such action has been considered necessary. Orissa. — See answer to I, question 1. Sind. — No special laws, decrees or regulations have been adopted since 1931 ; but the watch exercised over passports and visas has proved effective. Delhi. — See answer to II, question 1 (a). Madras, Bengal, United Provinces, Burma, North-West Frontier Province. — Reply in the negative.

Question 3 : (a ), (b) and (c).

Madras. — So far as local prostitution is concerned, the Madras Vigilance Association and the Madras Children's Aid Society co-operate with the police in combating the traffic. Bombay. — There has been no important development in this direction since 1931. The Bombay Vigilance Association has been assisting the police by reporting cases of traffic in women which come to its notice. Bengal. — There is no development to indicate since 1931. There are three homes for the protection and accommodation of girls (the Society for the Protection of Children in India ; Calcutta Vigilance Society ; Govinda Kumar Home ; Salvation Army Home). These societies help the police in checking traffic in women and children. Some also provide temporary shelter to those rescued from evil surroundings. United Provinces. — An endeavour is being made to establish in the United Provinces an association for social and moral hygiene which it is hoped will be such as can be entrusted with the duty of bringing to the notice of district magistrates offences under the United Provinces Suppression of Immoral Traffic Act. The majority of districts in the United Provinces report that the necessity of collaboration with missions and private organisations has not arisen. In some districts, however, there has been a development of co-operation between the police and organisations such as the Arya Samagi and Sova Samiti to put a stop to this traffic. In several of the larger cities the police and district authorities have helped to establish Ashams, widows’ homes, rescue homes, etc., in this connection. Punjab. — The Punjab Suppression of Immoral Traffic Act, 1935, was drafted in consultation with representatives of non-official organisations ; in particular, the Association for Social and Moral Hygiene. Section 17 of the Act provides that the local government may make rules for the custody and care of minor girls found in brothels. At present, the Government in council is considering to what area it can be most suitably applied. As soon as a decision is reached, it will be necessary to make arrangements for the care of prostitutes released from brothels, and it may be taken as certain that, for this purpose, the collaboration of existing private organisations for social work will be sought. Burma. — Collaboration between the police and the Vigilance Society has d eveloped considerably since 1931. During the years 1933, 1934 and 1935, the organising secretary of the Vigilance Society kept in very close touch with the police, and to that effect, from December I 935> two ladies from the Vigilance Society have been selected for whole-time duty with the police force. Bihar. — There has been no change in the position. Central Provinces. — Private organisations for dealing with prevention of traffic in women and children do not exist in this province. North-West Frontier Province. — The question does not arise. — gt — Orissa. — See reply to I. Sind. — There are no private organisations or authorities for combating the traffic in women and children. Delhi. — See answer to II, question i.

Question 4 : (a), (b) and (c).

Madras. — An experienced European lady welfare worker has recently been engaged by the Madras Vigilance Society. It remains to be seen in what direction her activities will be most successful. Bombay. — Women officials have not hitherto been employed by the Government of Bombay. Bengal. — There are two lady probation officers (appointed by the Government) to look after the health, work and conduct of girls who have been rescued from brothels. There are sixteen honorary lady magistrates who sit with the stipendiary magistrate in the children’s court, and take an interest in the social welfare of the girls. They were appointed in 1935, and their help and advice have proved useful in the disposal and care of rescued girls ; their work is confined to after care. United Provinces. — Women officers are hardly yet employed. It is hoped, with the establishment of rescue homes, to utilise the services of medical women and school inspectresses as inspecting officers for such homes. Punjab. — The Punjab Government employs a police inspectress at the Lahore railway station, but no women officials are employed in this province for special duty in connection with traffic in women and children. Work of this kind has not been strongly differentiated in the past from other social measures, and it is not possible to estimate the amount of time which lady doctors and health visitors devote to it. Burma. — As explained in question 3, the tw o ladies of the Vigilance Society are now employed wholly in the prevention of traffic in women and children, one of them having been invested with certain police powers. Experience in Rangoon shows that the employment of women officials has been beneficial. They have been able to get into much closer touch with prostitutes, and have been able to assist them to rehabilitate themselves, and it is in this direction that, their work is considered most successful. Bihar. — No women officials are employed for this purpose. Central Provinces. — No women officials have been appointed for this purpose, and there is no indication of their necessity. North-West Frontier Province. — No women officials are employed. Orissa. — In Cuttack there is a woman worker vested with powers of an inspector of police, so that she may visit and inspect brothels within the limits of the Cuttack municipality. There is not sufficient data available to state in what direction the employment of women officials is most effective. The lady referred to above, who is a missionary, has done useful work in Cuttack and has rescued girls and placed them in a rescue home. The women in this province generally are not sufficiently advanced and it is necessary for the present to depend on missionaries for work of this kind. Sind. — No women officials are employed. Delhi. — See answer to II, question 1 (a).

Question 5 : (a), (b), (c) and (d).

Madras. — There are no tolerated or licensed brothels. Bom bay.— There have never been any licensed brothels in Bombay City. Tolerated brothels existed prior to the passing of the Bombay Prevention of Prostitution (Amendment) Act, XII, of 1913. Following the passing of this Act, these brothels disappeared. No measures were taken for the disposal of the inmates. One of the results of the legislation of 1930 has, however, been that places which were once brothels have now become single-room tenements, each occupied by a prostitute, so that no part of a house or tenement is a brothel within the meaning of Section 11 of the Bombay Act of 1923. Bengal. — The Bengal Suppression of Immoral Traffic Act, 1933, superseded the Calcutta Act of 1923. United Provinces. — Licensed or tolerated brothels are not recognised in the United Provinces. Brothels, however, do exist, and it is proposed to apply certain sections of the United Provinces Suppression of Immoral Traffic Act, 1933, to selected areas in the United Provinces. Punjab. — The only new legislation on the subject since 1931 is the Punjab Suppression of immoral Traffic Act, 1935. Burma, Bihar. — Licensed or tolerated brothels do not exist. — 92 — Central Provinces. — There are no licensed brothels in these Provinces but there is a small number of “ tolerated ” houses, the abolition of which does not seem to be feasible at present. In a few localities, there is a growing public opposition to the existence of such houses and the Municipal Act is being encouraged. There is no appreciable change in the number of prostitutes. Measures taken or proposed are under the provisions of Sections 142 and 143 of the Central Provinces Act. The text of these provisions is to be found in the annex. North-West Frontier Province. — Since 1934, the Punjab Municipal (North-West Frontier Province Amendment) Act, 1933, has been passed empowering municipalities to prohibit the keeping of brothels and the residence of prostitutes within municipal limits or any specific part thereof. There has been no marked decrease or increase in the number of prostitutes or tolerated brothels. Orissa. — No new laws, decrees or regulations of the type referred to in the questionnaire have come into force since 1931. As far as measures referring to the abolition of brothels are concerned, the Madras Suppression of Immoral Traffic Act, of 1930, has not been applied in the portion of Madras Province which has been transferred to Orissa. The Act assumes the existence of rescue homes and other places intended for the custody, care or instruction of girls who are removed from disorderly houses, and so far has only been applied in the larger towns. The question of applying certain of the Madras Acts to Orissa Province is being examined and the question whether the Madras Suppression of Immoral Traffic Act should be applied will be considered. Sind. — The number of prostitutes has somewhat decreased in Karachi. Brothels as far as they exist have not been abolished. Delhi. — There are no licensed brothels in Delhi. There are many brothels which are tolerated as there is no law under which they could be suppressed. There has been little change in the number of prostitutes. The question of extending to the Delhi Province the Punjab Suppression of Immoral Traffic Act, 1935, has been receiving attention. Further consideration has been postponed till wider experience of its operation in the Punjab has been gained.

Question 6 : (a ), (b) and (c).

Bombay. — The Bombay City Police records show that, during the last five years, 23 women of Russian origin came to Bombay ; of these, 21 arrived with their families as refugees via Srinagar. The remaining two were theatrical artists. Of these 21 refugees, one is now in a mental hospital, two returned to Europe, and the rest are scattered through India. Of the two theatrical artists, one married an American in Calcutta and the other left for Shanghai. None of these twenty-three women is known to have been a prostitute. There are at present in Bombay eleven women of Russian origin carrying on prostitution. Some of them have been in Bombay for a number of years ; others came more recently from Calcutta. As most of them are no longer young it is unlikely that they will give up their present mode of living. United Provinces. — One woman artist of Russian origin has been living in Lucknow since *934- Punjab, Burma. — So far as is known, there are no women refugees of Russian origin in the Punjab or Burma who are in danger of becoming victims of the traffic. Bihar. — There is no information of the entry of women of Russian origin. Sind. — There is an increase in the number of women of Russian origin, none of whom are prostitutes. The majority of these women are married. Madras, Bengal, Central Provinces, North-West Frontier Province, Orissa, Delhi. — Reply in the negative.

V. Iraq.

I. General Questions with regard to tbe Changes in Traffic in Women and Children since 1931.

No answers are supplied to these questions, because of the non-existence of a specialised department for the purpose of collecting such information and statistics.

II. Special Questions regarding Points on the Agenda of the Conference. Question x.

No answer is supplied on this question for the same reason as mentioned above.

Question 2.

(a) There are no provisions in Iraqi laws bearing on protection against traffic in women and children with reference to points (i)-(v ) ; there are also no employment agencies in Iraq. - 9 3 - (b ) Foreign women engaged in acts contrary to public morals are deported in accordance with the Residence Law of 1923. (c) and (d) No answers available.

Questions 3 and 4. No answers available.

Question 5. (a) No new laws, decrees or regulations have come into force since 1931. Licensed brothels do still exist in Iraq. (b) No considerable change has occurred in the number of the licensed brothels nor in the number of the prostitutes. (c) See paragraph (a) above. (d) Abolition of licensed brothels is still under the consideration of the competent authorities.

Question 6. (a) No women of Russian origin have entered Iraq since 1931. (b) None of these women are engaged in prostitution. (c) No remarks.

VI. Japan.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. Access to our country is prohibited to any person wishing to engage in immoral occupations therein. Hitherto no attempts to infringe this prohibition are reported. 2. Owing to the prohibition mentioned under No. 1, there are no statistics. In many cases, the authorities have been called upon to give advice to women and children wishing to leave our country for this purpose. Cases of traffic in women and children coming from or passing through our territory are very rare. 3. and 4. Nothing to report.

II. Special Questions regarding Points on the Agenda of the Conference. Question 1. (a) Addresses of central authorities in the home territory : Ministry of the Interior ; No. 1, Sakuradacho Kojimachi-ku, Tokio. For the prefectures of police and all the offices of the prefectures of Hokkaido, Kyoto, Osaka, Saitama, etc. : 1,201 police stations and 24 maritime police stations. Addresses of the central authorities in the dependencies and mandated territories : (1) Korea : Police section of the office of the President of Korea, Keijo Korea ; (2) Formosa : Police section of the office of the President of Formosa, Taihoku (Formosa) ; (3) Karafuto : Police section of the prefecture of Karafuto, Toyohara (Karafuto) ; (4) South Sea Islands : Police section, Korror, Palao. (b) No ; only communications through the diplomatic channel (Ministry for Foreign Affairs) are utilised. Nevertheless, in the case of leased territories in foreign countries, direct communications exist with the chiefs of police attached to the Japanese consulates. (c) and (d) No difficulties have been encountered in maintaining these communications. (e) and (f) No particular type of co-operation or further measures have been contemplated.

Question 2. (a) No decrees, regulations or laws have been adopted since 1931. (b) Foreign women engaged in prostitution are deported. In 1934, 7 Chinese women and in 1935, one Chinese woman engaged in prostitution in Formosa were deported. (c) By the application of the laws, decrees and regulations (enacted previous to 1931), the purposes of the prohibition of the traffic in women and children have been effectively attained. We consider that the traffickers have no means of evading the provisions in force. (d) In virtue of the provisions mentioned above, emigrants are protected against traffic in women and children during migration ; (1) By supervision at the frontiers, in the railway stations (on the departure and arrival of trains), and in the trains themselves, by uniformed and plain-clothes police ; (2) By strict supervision in ports with a heavy traffic, where numerous police officers keep watch over the arrival and departure of vessels ; (3) By supervision, and in certain cases inspection, of vessels en route, exercised by the maritime police to ensure security, particularly that of women and children.

Question 3. (a.) In June 1933, the association for the prohibition of prostitution was founded for the purpose of abolishing the traffic in women and children. The said association studies this question for Manchuria, China, the other Eastern countries and Japan. It consists of distinguished persons, such as the Vice-President of the Ministry of Interior, senators and members of Parliament, and of eminent civilians. — 94 — (b) In the six prefectures of the north-east, after the devastation of the 1934 crops, the tendency to prostitution was accentuated. On November 20th of that year, through the Chief of the Social Section of the Ministry of the Interior, a sum of 114,900 yen was handed over to the President of the Employment Office as a fund for the protection of the women of that district against the traffic, and in order to find employment for them. The measures taken have been very effective and include the creation of women’s hostels and clubs. At Tokio, an institution has been created in order to teach housekeeping to women wishing to go into domestic service in that town. To take an example, in the prefecture of Yamagata, 1,027 talks and lectures have been given on the protection of women and children, and 237 associations for good morals have been constituted in the towns and villages of that department. Moreover, the association for the protection of emigrants of Yamagata has endeavoured to find employment for women with the assistance of the central employment agency, and was successful in 1,581 cases between March 1934 and the end of 1935. (c) Nothing to report.

Question 4. (a) No women officials are employed. (b) No experience. (c) None.

Question 5. (a) (1) In order to give more freedom to prostitutes, the second paragraph of Article 7 of the regulations concerning prostitutes was rescinded by Decree No. 15 of the Ministry of the Interior, dated May 23rd, 1932 ; (2) In the prefecture of Akita, licensed brothels were abolished on June 30th, 1932 ; all the regulations concerning prostitutes have been rescinded ; (3) In the prefecture of Nagasaki, abolition was effected on July 7th, 1933 ; (4) In the prefecture of Aomari, abolition came into force on December 27th, 1933 ; (5) Decrees and regulations which were not promulgated especially for prostitutes but are regarded as effectively prohibiting the traffic in women and children also exist. In Law No. 40, of April 1st, 1933, prohibiting the ill-treatment of children, the object is to protect children from ill-treatment and from being employed on work which is too hard for them. Under this law, the employment of young girls for hawking or service in restaurants may be prohibited if necessary. Persons infringing this law are liable to a penalty of one year’s imprisonment or a fine of 1,000 yen (maximum penalty). (b) Since 1931, the licensed brothels in the prefectures of Akita, Nagano and Aomari have been abolished ; in the two prefectures of Saitama and Gunma they were abolished before 1931. There are five prefectures which have abolished licensed brothels. According to the statistics of the 1931 Commission on Traffic in Women and Children in the Far East, there were 541 quarters authorised to establish licensed brothels. The number of keepers of licensed brothels was 9,954 and the number of prostitutes 50,056. As will be seen below, these figures have since declined. In 1935, there were 468 quarters authorised to establish licensed brothels. The number of keepers of such brothels was 9,326 and the number of prostitutes 45,837. The decreases were : in the number of quarters containing licensed brothels, 73 ; in the number of keepers of licensed brothels, 628 ; in the number of prostitutes, 4,219, In Korea, Formosa and Karafuto, the number of licensed brothels and of prostitutes shows a downward tendency, as is proved by the following figures :

I9 3 I 1935 Licensed brothels Prostitutes Licensed brothels Prostitutes

K o r e a ...... 521 3,093 461 3,109 F orm osa...... 124 1,149 113 1,026 K arafuto...... 3 i 161 22 97 T o t a l ...... 676 4>4°3 596 4,23i

Free prostitutes are not admitted to the territories mentioned in the foregoing table, but the time has not yet come to do away with them altogether. (c) In the prefectures which have abolished licensed brothels, the Social Section is endeavouring, with the collaboration of voluntary organisations, to find employment for and rehabilitate prostitutes by encouraging them to marry or by teaching them domestic work or by facilitating their return to their own province. (d) Prostitution is a social vice. The authorisation of this profession is to be deprecated from both a social and a moral standpoint. The Government, taking all the circumstances into account, is earnestly studying the problem with a view to finding a solution. In the prefectures mentioned below, the population submitted a resolution to the authorities of the prefecture urging the abolition of licensed brothels. The association for the abolition of these brothels is strong enough to reach a solution. — 95 — List of prefectures which have asked for the abolition of licensed brothels :

Prefecture Date of application G u n m a ...... March 17th, 1882. Saitam a...... December 6th, 1928. F u k u i...... December 17th, 1928. A k ita ...... December 21st, 1928. F uk ish im a...... December 23rd, 1928. N i g a ta ...... December 14th, 1929. N a g a n o ...... December 14th, 1930. K anagaw a...... December 21st, 1930. O k in a w a ...... December 24th, 1930. I v a r a g i...... November 28th, 1931. Y a m a n a s h i...... December 19th, 1931. Miyagi ...... December 21st, 1932. Iw até ...... December 17th, 1933. K o t i ...... December 26th, 1935. Question 6. (a) It is not quite certain in what year the Russian women refugees entered our territory, but the total number residing there is as follows : in 1932, 562 ; 1933, 575 ; 1934, 580 ; 1935, 609. In 1931, there were 8 Russian women refugees in Formosa ; in 1935, 2 were still residing there as members of a cloth merchant’s family. (b) There are no prostitutes among the Russian women refugees residing in our country. (c) We have no suggestions to offer.

VII. Netherlands : Netherlands Indies.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. The position remains the same as described in the Report of the Commission of Enquiry into Traffic in Women and Children in the East. 2. Number of cases of Number of cases of international national traffic traffic in women in women 1931 ...... 3 8 1932 ...... 4 * 2 January 1st, I933*july 1st 1 933...... 2 2 July 1st, 1933-July 1st 1 9 3 4 ...... 2 5 July 1st, 1934-July 1st 1 9 3 5 ...... • • • 1 6 July 1st, 1935-July 1st 1 9 3 6 ...... 4 12 3 and 4. It is not possible to draw any definite conclusions from the data available, since, according to the above-mentioned figures, the increase in international traffic and in national traffic did not take place until 1935/36. It will only be possible to draw more positive conclusions if this increase continues in the period 1936/37, if the type of cases remains the same and if it becomes apparent that unfavourable economic factors are playing a decisive part.

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1. (a) The Government Bureau for the Suppression of the Traffic in Women and Children and the Traffic in Obscene Publications, at Batavia. (b), (c), (d), (e) and (f) The cases of international traffic examined since 1931 all relate to the Straits Settlements and southern China. The relevant correspondence was exchanged between the Bureau at Batavia and the Netherlands Consul-Generals at Singapore and Hong-Kong. In the Straits Settlements, when cases of trafficking are discovered, both the police of that territory and the Secretary of Chinese Affairs communicate with the Netherlands Consul-General at Singapore, who informs the Batavia Bureau and continues to act as intermediary. The Batavia Bureau also acts through the Consul-General at Singapore. Under an arrangement of 1917, the latter is authorised in urgent cases to communicate direct with the authorities of the Netherlands Indies ports at which suspected persons have landed, and vice versa. A copy of the correspondence must be sent to the Batavia Bureau. For southern China, the Netherlands Consul-General at Hong-Kong acts as intermediary. At Hong-Kong, the Secretary of Chinese Affairs has informed the Consul-General of a few cases in which Netherlands Indies subjects were involved. If the initiative is taken by the Netherlands Indies, the Batavia Bureau gets into touch with the Consul-General, who either passes on the case to the Secretary of Chinese Affairs or decides upon some other form of action. The experience afforded by the two following cases is highly instructive. A certain woman accompanied a Chinaman from the Netherlands Indies to China, where she got into difficulties ; her parents in the Indies sent money for her return journey. With a view to tracing this woman, who was probably to be found in the neighbourhood of Fu Chow and helping to repatriate her, - 9 6 - the Netherlands Minister at Peiping approached the Central Government at Nanking, requesting the co-operation of the Provincial Government of Fukien. As the woman could not be found, recourse was had to the services of a Chinese inspector of the Asiatic Petroleum Co., who was asked to look for her. In the end, the attempt to find her had to be abandoned because all efforts proved fruitless. Similar cases had already arisen in which the Chinese Government advised the Netherlands Minister at Peiping to send a representative into the interior to assist women whose exact address had been obtained by the Consul-General. On another occasion, a European woman arrived in a certain district and her address was discovered from letters she had sent. Nevertheless, the magistrate of that district was unable to trace her, and it was learnt that she could not be got back without a ransom. In the end, the woman escaped and was brought by the Catholic mission to the Consul at Fu Chow. It is stated in the report on the Work of the Advisory Commission for the Protection and Welfare of Children and Young People (document C.149.M.62.1934) that there is a Chinese office at Hong-Kong which deals with cases of this kind. According to the information obtained by the Government of the Netherlands Indies, this office is that of the Secretary of Chinese Affairs which deals only with cases in which Chinese nationals are involved and which occur at Hong- Kong. That being the case, the Batavia Bureau will be obliged in the majority of cases to get into touch with the Netherlands consular representative. Question 2. (a) Since 1931, there has been no change in the regulations as regards the points mentioned. (b) Yes ; see, inter alia, Article 10 of the regulations concerning the admission of foreigners (Statute Book of the Netherlands Indies, 1916, No. 47, and 1927, No. 255). (c) The existing regulations are sufficient for the protection of immigrants, including young girls. If a young female immigrant is accompanied by her parents or someone to whose care she has really been entrusted, or if her employer has informed the Secretary of the Immigration Commission in advance of her arrival, transmitting to him the relevant correspondence and, if possible a photograph, this official, if he is satisfied that the persons concerned are trustworthy, issues a permit without any further formality. If he has any doubt, he will refuse to grant the permit ; an expulsion order is then issued, the execution of which is, however, suspended. The young immigrant is placed in the care of the person who asks for her to be entrusted to him or her, provided the person in question is trustworthy, but the immigrant remains under the supervision of the Batavia Bureau. If those conditions cannot be fulfilled, or if it is uncertain whether, if the immigrant is sent back to the country from which she came, she will be properly looked after, either in her parents’ house or in an institution, she is placed in one of the institutions in the Netherlands Indies which take care of girls of this type. This arrangement works very satisfactorily. Such detailed arrangements are not required in the case of adult women, as experience shows that cases of trafficking in adult women are very rare. As a result of the credulity of the rural population, a few women were taken to Singapore, and, in 1930, special instructions were accordingly issued to the magistrates. (d) The Netherlands Government is of opinion that the recommendations of the Regional Conference held at Hong-Kong on July 2nd, 1935, might be of considerable assistance in suppressing the traffic in women and children. Those recommendations should be examined more closely at the Bandoeng Conference. Question 3. There has been very little change in the situation since 1931. (a) The present activities of the private organisations show that their chief aim is to give women their proper place in society and to prepare them more thoroughly for family life. These organisations are mainly concerned with the intellectual and moral development of women. Organisations for the suppression of the traffic in women and of prostitution are merely of secondary importance, the view being taken that, unless proper attention is paid to the general aspect of the problem, it will not be possible effectively to combat prostitution. This is one of the reasons why those organisations have not as yet requested Government assistance in suppressing prostitution. Moreover, as a rule, the native women's organisations apply the principle of self-help—that is to say, they do not want Government interference in matters with which they are dealing themselves. (b) At Batavia, two representatives of women’s organisations have been appointed police commissioner and chief inspector of police (unpaid) respectively. This institution is not yet of any great importance. (c) Efforts are being made to ensure closer collaboration between the authorities and private organisations. Question 4. (a) See reply to question 3 f b). (b) and (c) Women would be unable to carry out the purely police functions of this office unless they were in a position to devote their whole time to the work and had no household duties. They can, however, be employed as assistants and as the representatives of private organisations. Question 5. Licensed brothels are prohibited in the Netherlands Indies. Question 6. No women refugees of Russian origin engaged in prostitution have been discovered in the Netherlands Indies ; the severe immigration regulations prevent these women from entering the Netherlands Indies. — 97 —

V III. Portugal : Portuguese India.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. Traffic in women and children does not exist in Portuguese India, owing—among other reasons—to the religious prohibition which prevents Hindu women from crossing the sea. Our position in this connection is strictly analogous to that of British India—i.e., the question does not concern us from the international point of view. 2. No reply can be given to this question, in view of the facts given above. It may, however, be added that procuring has declined in recent years. 3. The improvement is due not only to the energetic action of the police, but also to the protective measures taken by the Government of Portuguese India in connection with the Goanese community resident in the Bombay Presidency. The Government of Portuguese India, by Decree No. 598, of September 8th, 1932, set up an Emigration Fund, controlled by a Committee appointed by the Government, and intended to assist indigerit Goanese families, and more particularly to encourage girls and women of Portuguese nationality who, by reason of their environment, might take up prostitution or procuring, to exercise an honest profession. 4. Although women in Portuguese India are not drawn into the international traffic, cases of procuring occur among Hindu Goanese women, chiefly by reason of religious tradition and the caste system, which predestines, so to speak, a large number of girls to prostitution, while at the same time greatly reducing the effectiveness of any moral aid or material assistance offered to them. Apart from these devadasis or bom prostitutes, the conditions of life of Hindu widows, which are often harsh, greatly facilitate procuring in that category of women. As regards Christian Goanese women engaged in prostitution in the great cities of British India (mainly Bombay), their moral collapse is due to lack of means and to the persuasions of philanderers ; many of them are employed there as servants, in highly pernicious surroundings.

II. Special Questions regarding Points on the Agenda of the Conference. Question 1. (a) As the international traffic does not extend to Portuguese India, the names and addresses of the authorities are not dealt with by special legislation. Nevertheless, the police authorities supervise the enforcement of the regulations relating to prostitution, by prosecuting procurers and deporting persons suspected of living on the earnings of prostitutes. (b) The closest contact is maintained between the authorities of Portuguese India and those of British India. (c) The communications referred to in this question are mainly of a police character. (d) No. (e) Apart from cypher telegrams, I am not aware of any more effective special means of co-ordination and co-operation. (f) Weekly bulletins are circulated among the authorities entrusted with supervision and the enforcement of the measures taken in order to put down this traffic.

Question 2. (a) The Administrative Emigration Committee set up by Order No. 598, of September 8th, 1932, is responsible for supervision in the port of Bombay, which is the landing-place of practically all women and children leaving Goa, and supervises the employment agencies maintained for disembarking female emigrants. As regards further measures designed to discourage traffic in migrant women and children, although such traffic does not exist on the international plane, the most recent Regulations of the Police Service, published in 1935, include legal provisions for the prevention and punishment of procuring. Apart from these Regulations, there also exists a kind of ecclesiastical law—the Pastoral Letter of the Archbishop of Goa, dated June 8th, 1936—which urges priests in all the villages under the jurisdiction of the Archbishop to make every effort to put women contemplating expatriation on their guard against the moral dangers to which they will be exposed in the great cities of British India. (b) There is no special legislation compelling foreign women engaged in prostitution to leave the country. (c) In view of the previous reply, no information can be given in answer to this question. (d) The measures to which this question refers are those embodied in Order No. 598, of September 8th, 1932, and in the Pastoral Letter of June 8th, 1936.

Question 3. (a) The Goanese community, the religious congregations (Franciscan Sisters and Daughters of the Cross), and among Hindus the charitable organisation called Goman Lak Maratha Lamaj, are making strenuous efforts, in collaboration with the Portuguese authorities (the Portuguese Consulate-General in British India and the Administrative Emigration Committee) and with the

7 98 - British authorities, to induce young Goanese who are in danger of becoming prostitutes, procurers or souteneurs to take up honest livelihoods or, in persistent or relapsed cases, to return to their own country. (b) No. (c) No answer can be given from the legal point of view ; from the social standpoint, the answer is in the affirmative.

Question 4. (a) No women police officers are employed in Portuguese India. (b) There has been no experience in this connection. (c) No answer can be given to this question.

Question 5. (a) Since 1931, the Health Police Regulations of January 25th, 1935, have been applied in Portuguese India. (b) The number of tolerated or licensed brothels has remained approximately unchanged. (c) The system applied is that of controlled prostitution. (d) No information can be given on this point, in view of the preceding replies.

Question 6. As there are no Russian refugees in Portuguese India, this question does not arise.

IX . Macao.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1, 2, 3 and 4. There is no record for the territory of Macao of any cases of traffic in women and children for immoral purposes. The only case that can be mentioned, in answer to the present questionnaire, is that of the deportation to Shanghai, in October, 1935, of sixteen Russian dancing girls, who had come to Macao during the preceding month of May. These women were suspected of being prostitutes, and with them were two Russian men who were seriously suspected of being engaged in the traffic. At the present time, there are no persons in the colony suspected of carrying on any such activity. The few Russians at present residing in Macao are permanent residents, whose passports are in order and who are engaged in legitimate occupations ; their activities have never aroused the suspicions of the authorities.

II. Special Questions regarding Points on the Agenda of the Conference. Question 1. (a) Administrative Office of the Council and the Office of Commissioner of Police, Macao. All services connected or which may be connected with the suppression of traffic in women and children are carried out by the two departments mentioned above. (b), (c), (d), (e) and (f) All communications between the Macao police authorities and similar Bristish and Chinese authorities are easy and direct, and the best of relations are maintained. The same must be said with regard to the police services of Shanghai. No difficulties of any kind have ever arisen.

Question 2. (a) : (i), (ii), (Hi), (iv) and (v) No characteristic cases of traffic in women and children have been noted in Macao nor is there any movement that can be termed emigration, since no passports have been visaed. No laws, decrees or regulations have been promulgated in recent times (there has been no need for them), with the exception of the Aliens Regulations (Ordinance No. 1059, Boletim Oficial, No. 46, of February 16th, 1935) providing for the supervision of passports. Navigation at Macao is principally on the river. There is a service of small ships between Macao, Hong-Kong and Canton each trip taking not more than a few hours. Nearly all the passengers entering and leaving Macao are travelling for commercial reasons. There are no employment agencies in Macao. (b) Covered by the answer given to 1, 2, 3 and 4 of " General Questions (c) and (d) Covered by the above replies, which state that no traffic in women and children, or emigration, properly speaking, is to be found in Macao.

Question 3.

^ (a)> (b) and (c) The Foundling Home (Casa de Beneficencia), managed by the C a n o s s ia n Sisters, has worked very closely with the Macao authorities in affording protection to minors of the feminine sex, found abandoned or in danger of moral perversion. The Home is efficiently run and it takes in all those not otherwise provided for. In addition to protection, the inmates of this establishment receive a sound moral education, to help them to overcome all improper temptations, while girls are also taught some trade or occupation to enable them, when they leave the Home, to seek an honest and decent livelihood. — 99 — The Salesian Orphanage also collaborates very effectively in affording protection to boys and youths, and so does the Orphan Asylum (Asilo dos Orflos), providing, within its means and resources, for Chinese and non-Chinese orphan boys in this colony.

Question 4. There are no women agents employed in the protection of women and children, with the exception of the service rendered by the Foundling Home referred to in the answer to question 3 (a), (b) and (c). The service rendered by this institution is of a collective nature and not individual ; more institutions of the kind referred to in the preceding answer are not needed.

Question 5. The opinion held is that the disadvantages of suppression are incomparably greater than those of regulated prostitution. Suppression would result in clandestine prostitution with all its attendant evils : lack of sanitary supervision, the display of vice in the streets, squares and other public places, easier opportunities for inexperienced young men, the spreading of the vice instead of its localisation, greater facilities for the souteneur and many other disadvantages. On the other hand, one of the principal objects of the control of prostitution is to restrict immorality to a minimum ; to localise it, and thus to prevent as far as possible the spread of venereal diseases through stricter supervision and by the free, systematic, and efficient treatment of registered women. These, summed up in a few words, are the general reasons. There is no need to go into the matter in detail. As regards Macao, because of the legal provisions in force and the peculiar conditions prevailing, it may be said that :

(i) No woman may engage in prostitution without being registered. (ii) No woman under age can be registered in Macao, and severe measures are taken against those permitting minors to enter or live permanently in registered houses. The are no “ depots ” of minors for trafficking purposes ; nor is there any good reason for suspecting anything of the kind. (in ) Besides the St. Raphael’s Hospital, where the medical inspection of registered women takes place and where infected persons are kept for treatment, a clinic destined exclusively for the treatment of registered women in-patients has recently been established in Macao, to provide easy treatment and to prevent, as far as possible, the spread of venereal diseases. (iv) No cases are known of contracts for prostitution, and any woman may cancel her registration whenever she pleases. The police inform the registered women directly of this provision, and a notice to this effect is posted by order of the authorities, in all rooms where registered women live. It also states that landladies have no right to keep jewels or other property of the inmates of the house, on any pretext whatsoever, for the payment of any debts. (v) Besides the penalties to which they are subject under the law generally, persons exploiting the prostitution of others are also liable to a fine of 30,000 dollars and thirty days’ imprisonment, whenever sufficient proofs are available, and persons supected of being souteneurs m ay be deported. The closing down of brothels would have, in addition to the harmful results already mentioned the added disadvantage of facilitating the spread of venereal diseases ; it would increase the number of dancing girls, taxi-girls, and restaurant and café attendants at the expense of registered women, who, having to give up their registration, would then carry on prostitution, clandestinely, under the Chinese title of “ tche fo ”, and would spread immorality on all sides, without distinction of persons or places.

* * *

In the last part of this questionnaire the disadvantages have been mentioned which, in the opinion of the Government of Macao, might ensue from the suppression of brothels, and the advantages of the existing system of regulation. Nevertheless, the Portuguese authorities of this colony are carefully studying a Bill on the suppression of brothels, which will be put in force as soon as possible after it has been approved by the Portuguese Government.

X. Siam.

I. General Questions with regard to the Changes in Traffic in Women and Children since 1931.

1. No marked change in the trend of traffic has been noted. 2. The traffic from China seems to have decreased since 1931. 3- The number of Chinese brothels and prostitutes has become considerably smaller (see figures below). This circumstance has been due partly to the economic depression and partly to the stricter control of immigration. As an example of the latter, three cases of offences against the Traffic in Women and Girls Act (B.E. 2471) (1928), involving four traffickers and nine victims have been discovered since last April. The offenders in the last case were sentenced to three years’ imprisonment.

7* — too — 4. In past years, the majority of those who frequented brothels were Chinese from Hainan, whose women seldom migrated with their men. The number of Hainanese female immigrants has recently increased with the result that the men have become more domestic in their habits. This is believed to have an indirect effect on the traffic.

II. Special Questions regarding Points on the Agenda of the Conference.

Question 1. (a) The Central Authority is the Director General of Police. The divisions of Immigration and Criminal Investigation of the Police Department are responsible for preventive measures. ( b) There have been occasional direct communications with Hong-Kong and British Malaya. (f) Practical effect can be given to the proposal of collaboration between the responsible authorities by authorising the Director of Immigration to communicate with corresponding 01- local authorities at ports from which emigrants proceed to Siam. It is hoped that letters of confirmation will be accompanied by photographs and particulars of suspected persons.

Question 2.

(a) There has been no innovation in laws, decrees or regulations since 1931 with reference to passports or emigration control. Employment agencies are not yet well established in Siam, with the exception of the Labour Bureau of the Ministry of Economic Affairs, which finds work for unemployed persons. (b) No. (d) Immigration officials accompany all international trains running between Siam and British Malaya as well as those terminating at the frontier of Cambodia. Further measures that may be proposed by the Conference will receive due consideration, since it is the policy of Siam to strengthen control against this traffic.

Question 3.

(a) Missions or private organisations have not yet concerned themselves with the question of combating traffic in women and children. (c) It is hoped that certain existing women’s organisations may interest themselves in this activity.

Question 4.

(a) The system of compulsory education for both sexes and the improvement of the status of women, who now have the right to vote and the opportunity of governmental or commercial employment, are important contributions toward an improvement of basic conditions. The ground is thus prepared for more specialised welfare work in which women especially can play a more important rôle. A certain number of women are already in the police force, but for this aspect of welfare work special training and experience are essential. (b) General admittance of women into official employment has taken place since 1931. It is considered that women are quite competent to undertake most kinds of welfare work as evidenced by past experience in public health and medical work. Women have also proved themselves effective in educational administration. (c) The Police Department is now considering the employment of a woman official to supervise female immigrants. Another employment may also be made in the police service dealing with prostitution and allied questions.

Question 5.

(a) No, the Government has appointed a Committee of competent officials and experts to consider the question of abolishing licensed or tolerated houses with fairly wide terms of reference which include recommendations for legislative and administrative measures for this purpose. (b) The following comparative figures show the number of licensed houses and of registered prostitutes in Bangkok during the last eight years :

Siamese Chinese Annamite Total Year Houses Women Houses Women Houses Women Houses Women

1 9 2 9 ...... 28 138 137 646 5 5 170 789 1930 (10 m on th s)...... 22 102 126 543 3 4 151 649 1 9 3 1 ...... 15 56 105 455 2 1 122 512 1932 ...... 8 3 i 98 401 1 1 107 433 1933 • ...... 6 22 91 397 2 2 99 421 1934 ...... 10 38 74 332 3 3 87 373 1935 ...... 12 39 6 3 309 2 2 77 350 1936 ...... 28 97 6 3 3 2 6 2 o1 93 423

1 Siamese women. — 1 0 1 — It should be noted that out of the total of seventy provinces in the whole Kingdom of Siam there are only four, including the capital city of Bangkok, in which tolerated or licensed brothels exist. In each of the three interior provinces, however, the number of prostitutes are only to be numbered by tens. The Committee above referred to have already submitted an interim report recommending gradual abolition. (d) The Government is favourable to the policy of the abolition of licensed or tolerated houses, but considers this matter as only one part of the problem of prostitution. The Government considers that abolition should therefore be approached cautiously so that the closing of brothels will bring no aggravation of the larger evil either in respect of venereal disease or of public order. It would be helpful to obtain the experiences and considered opinion of other governmental authorities of eastern countries where licensed and tolerated brothels have been banned. Reference is made to such matters as clandestine prostitution, street-walkers, souteneurs, as well as the remedial measures employed, such as welfare, health and educational activities.

Question 6. This question does not apply to Siam, and Russian prostitutes will continue to be kept out of the country.

ANNEX 5.

TRAFFIC IN WOMEN AND CHILDREN

REPORT OF THE CONFERENCE OF CENTRAL AUTHORITIES IN EASTERN COUNTRIES

Bandoeng, February 13th, 1937.

The Conference of Central Authorities in Eastern Countries was convened by the Secretary- General of the League of Nations, acting on the decision taken by the Council at its ninety-fourth session, on October 10th, 1936. The resolution adopted by the Council on this occasion reads as follows : “ The Council, " Having taken note of the state of the preparations for the Conference of Central Authorities in Eastern Countries ; “ Having noted that the necessary funds for the holding of such a Conference are available ; " Having also noted with appreciation that an invitation has been extended by the Netherlands Government for the Conference to be held in the Netherlands Indies : “ Convokes the Conference of Central Authorities in Eastern Countries at Bandoeng, Java, for Tuesday, February 2nd, 1937, and authorises the Secretary-General to issue invitations to : “ The Governments which have declared their readiness to participate in the Conference ; “ The international organisations and missions whose participation is agreed upon by the majority of the countries taking part ; “ Any national, regional or local organisations proposed by the participating Government in whose territory they operate ; " Any experts whose participation, in consultation with the Governments concerned, might be deemed desirable for the success of the Conference ; “ It being understood that the participation of all such voluntary organisations, missions and experts will be of an advisory or consultative capacity ; “ It being also understood that any expenses incurred in connection with the participation in this Conference of delegates and experts will have to be borne by the Governments or organisations concerned. “ The Council associates itself with the message of greetings and good wishes for the successful issue of the Conference to which the seventeenth Assembly has given expression.” The Conference sat from Tuesday, February 2nd, 1937, until Saturday, February 13th, 1937, at Bandoeng, and held twelve meetings. The following representatives of Governments, missions, international voluntary organisations, national, regional and local organisations, and experts were present :

I. Go v e r n m e n t s. United Kingdom. Governments of the Straits Settlements and Federated Malay States. delegate:

Mr. A. B. J o r d a n , Secretary for Chinese Affairs. — 102 — Advisers :

Mr. R. P. B in g h a m , Assistant Protector of Chinese, Singapore. Mr. D. W. Ma c in t o sh , Assistant Superintendent of Police, Singapore.

Government of Hong-Kong.

Mr. R. A. C. N o rth , Secretary for Chinese Affairs.

China. Delegate :

M. Fartsan T. S u n g , Consul-General.

Secretaries, Advisers and Expert:

M. Kwanchoh C. Ch u , Chancellor of the Chinese Consulate-General. Mme. Margaret Wong S u n g . M. H si-L ing H s iu n g . Mme. Yen Wen Mao H siu n g . Mile. Jui Wu K u a n . M. Ho Chin Ch e n . Mile. Hilda Y e n .

United States of America. Observer:

Miss Anne G u t h r ie , Advisory Secretary of the Young Women’s Christian Association, Manila.

France (for the Indo-Chinese Union and the French Concession of Shanghai).

Professor A. P. R. L a b r o u q u è r e , Professor of Law, University of Hanoi.

India.

Mrs. C. M u k e r je e , Chairman of the All-India Women's Conference.

Japan.

M. Chikayuki A k a g h i, Secretary of the Department for Overseas Affairs. M. Hideo S u z u k i, Secretary of the Government-General of Taiwan (Formosa). M. Naraichi T a n a k a , Secretary of the Department of Home Affairs. M. Yuzo I so n o , Secretary of the Department of Foreign Affairs.

Netherlands (for the Netherlands Indies). Delegates :

Jonkheer A. T. B a u d , Secretary of the Government of the Netherlands Indies. M. J. A. J . Me y e r , Inspector of Discipline, Education, Reclassification and Public Assistance in the Netherlands Indies. D r. H. G r o e n e v e l d t , Inspector of the Immigration Service in the Netherlands Indies.

Secretary and Experts :

Dr. E. O. Baron v a n B o etz e la er , Sub-Director in the General Secretariat of the Netherlands Indies. Dr. G. W. v a n O v e r d ij k in k , Head of the Chinese Section, Government Bureau for Eastern Asiatic Affairs. M. T. A. M. V e r b u n t , Professor at the Batavia High School of Medicine. M. P. L. T ib e r g h ie n d e Mo u l in , Army Medical Officer of the First Class.

Portugal. Portuguese India.

Professor Alberto C. Germano S. Co r r e ia , Lieut.-Colonel, Sub-Director of the Health Service.

Macao.

Dr. Carlos Sam paio , Colonial Secretary of Macao. D r. F. d e A lcam bar P e r e ir a , Department of Justice.

Siam.

H.S.H. Prince Sak o l Va r a v a r n , Adviser to the Ministry of the Interior. Colonel Pra B ic h a r n , Deputy Director-General of the Police Department. — 103 —

II. M issio n s a n d I nternational V o l u n t a r y O rganisations.

i. Sacred Congregation “ De Propaganda Fide Observer: The Reverend John B u r g e r s, S.J.

2. International Missionary Council.

Dr. N . A. C. S lotem aker d e B r u in e .

3. Salvation Army.

Commissioner Johannes d e G root, Territorial Commander of the Salvation Army work in the Netherlands Indies. Dr. Wilhelm Andreas W il le , Lieut.-Col., former Medical Superintendent of the Salvation Army in the Netherlands Indies. Major Christine S t e w a r t , Secretary for Social Work amongst Women and Children in the Netherlands Indies. Lieut.-Colonel R id s d e l , Chief Secretary of the Salvation Army in the Netherlands Indies. Brigadier Herbert L o r d , Officer in Command of the Salvation Army in Singapore and Malaya.

4. Pan-Pacific Women’s Association.

Mile. Augustine Leonore F r an sz, General Secretary of the Y. W. C. A. for the Netherlands Indies.

5. World’s Alliance of Young Men’s Christian Association.

Miss R uth Frances W o odsm all, General Secretary of the Y. W . C. A.

6. World Young Women’s Christian Association.

Miss R uth Frances W oodsm all, General Secretary of the Y. W . C. A. Miss Jeanne Bayly P e r k in s , Secretary of the International Branch, Shanghai Y. W . C. A. Mile. Augustine Leonore F ra n sz , General Secretary of the Y. W . C. A. for the N etherlands Indies. Miss Carolina G u n n in g , Secretary of the Y. W. C. A.

III. N a t io n a l , R eg io na l a n d L ocal Organisations.

China. The World Red Swastika Society of China.

M. Hsi-Ling H siu n g , former Prime Minister. Mme. Yen Wen Mao H s iu n g .

The Children’s Home, Hsiang-Shan, Peiping.

Mile. Jui W u Kuan.

The China Child Welfare Association.

M. Ho Chin Chen. Mile. H ilda Yen.

India. Association for Moral and Social Hygiene.

Miss Meliscent S h e p h a r d , Central Organiser, Association for Moral and Social Hygiene (India).

Netherlands Indies. Association “ Ati Soetji Delegates : Dr. H . J. S p it . Mme. Loe Ping Kian. M. Lie Tjian T j o e n .

Substitutes : Mme. J. F . H art-Co e te r ie r . Mme. L. M ansch o t-K la a sesz . Dr. J. G. W . L ekkerkerker . — 104 —

Indo-Europeesch-Verbond Vrouwen-Organisatie.

Delegates :

M m e. C. H. R a zo u x S chultz-Me t z e e . M lle. H . C. L. v a n Ma a r se v e e n . M lle. S. J. H . B. v a n J o o st. M m e. Ir. H . H. Ge r l a -D in g e m a n s.

Substitutes :

M me. I. t e r L a a k . Mme. A. H . H a r t je n s V a n b u u r e n .

Perkoempoelan Pembasmian Perdagangan Perempoean dan Anak-anak.

Mme. S o e k e m i. M. T a b r a n i. M. SOEBARTJO. Dr. D armosoegito.

IV. E x p e r t s .

International Criminal Police Commission.

M. O tto Co e r pe r , Assistant Chief Commissioner of Police. The Conference decided, according to Article I, paragraph i, of its Rules of Procedure, to invite as expert Mlle. M. Ma l t h e , former member of the Commission of Enquiry into Traffic in Women and Children in the East. The Conference elected as President Jonkheer A. T. B a u d , first delegate of the Netherlands, and as Vice-President, Mrs. C. Mu k e r j e e , delegate of India.

* * *

The agenda, approved by the Assembly of the League of Nations on October 6th, 1936,1 consisted of the following points : I. Closer collaboration and wider exchange of information between the police and other authorities in the different countries who are responsible for measures concerning the prevention of traffic in women and children in the East. II. Migration, in so far as this question affects theprotection ofmigrants against traffic in women and children. III. Possibility of abolishing licensed or tolerated brothels in the East. IV. Closer collaboration between police and other authorities and private organisations in the East. V. Possibility of employing a larger number of women officials by the authorities responsible for the welfare of women and children. VI. Problem of women refugees of Russian origin in theFar East whohave been or are in danger of becoming victims of the traffic.

The Conference, after extensive discussion,2 arrived unanimously at the following conclusions and recommendations :

I.

The Conference, Being convinced that a closer co-operation between the authorities which, in each country, are entrusted with the duty of dealing with the international traffic in women and children is the most essential factor of successful action against this evil ; and Wishing to ensure a more effective co-ordination of the steps already taken or to be taken in this connection by the Governments concerned :

Adopts the following resolutions : 1. The Conference recommends that a Bureau of the League of Nations should be created in the East to receive regular reports from all participating countries in regard to traffic in women and children and to circulate such reports to all participating countries. The reports would be held to be confidential and not to be published outside the official circles of the countries concerned.

1 Document A.62.1936.IV. a The Minutes of the Conference can be consulted in the archives of the Secretariat of the League of Nations. — 105 They should contain information concerning the following four classes of individuals :

(a) Men and women convicted of trafficking in women and girls ; (b) Men and women convicted of trafficking in children ; (c) Men and women deported or banished from the territories of participating countries for offences referred to in (a) and (b) above, whose conviction in court has been impossible for some good reason, but whose guilt has been established to the satisfaction of the Government concerned ; (d) Men and women who are wanted in connection with the offences referred to in (a) and (b) above, but who have made their escape before the warrant of arrest issued against them could be executed. With regard to each man and woman whose name is sent by the Government of a participating country to the Information Bureau, it is desired that the following data should be given : Full name and any known aliases. Sex. Age. Birthplace. Nature of offence for which the conviction has been obtained or on account of which the man or woman has been deported or banished, together with the length of any sentence of imprisonment he or she is serving for this offence. Photograph of the culprit. Finger-prints of the culprit, if available. The Conference recommends that it should also be the duty of the Bureau to suggest, for the consideration of the Governments concerned, any measures which might facilitate the collection and distribution of information, and generally to promote collaboration between participating countries in such ways as may appear desirable to these countries. The Information Bureau should make annual reports on its work to the League of Nations.

2. The Conference, Noting that the Commission of Enquiry into Traffic in Women and Children in the East has drawn attention to the lack of co-operation between the police authorities of China and the police authorities of the foreign concessions and settlements on the coast of China in the fight against traffic in women and children, and that the Chinese delegation and the French delegation desire that closer collaboration should be brought about between their respective police authorities : Recommends that the League of Nations should approach all interested Governments with a view to ensuring closer co-operation between the police authorities of all Governments concerned and with a view to the holding of local Conferences, where necessary, for the consideration of more effective measures for the prevention of traffic in women and children.

3. The Conference recommends that adequate provision should be made, by legislation, by international arrangements or otherwise, to enable the proper authorities to arrest traffickers on board vessels when actual attempts are being made to land their victims.

II.

The Conference, Having taken note with great satisfaction of the efforts made by the Governments of various States taking part in its discussions with a view to dealing more effectively with the traffic in women and children, not only by the adoption of more stringent measures against traffickers, but also by striking at the fundamental causes of the traffic : Adopts the following resolutions : 1. The Conference, Having noted the measures taken at the port of Hong-Kong for the examination of female and minor emigrants and the provision of photographs for their identification : Expresses the hope that similar measures may be adopted at other ports in the East at which it is reasonably suspected that traffic in women and children is taking place. 2. The Conference recommends that the Hong-Kong Government be requested to consider the extension of the provisions in force regulating the control of emigrants to cover the case of female and minor passengers on other than " emigrant ships 3. The Conference recommends that special measures should be taken by Governments, both by control at frontiers and by supervision within their territories, for the protection against traffic of women and children who belong to or accompany travelling troupes of entertainers. — io 6 — 4. The Conference recommends that Governments should make arrangements or, if necessary, regulations under which their national shipping should collaborate with port authorities generally in order to prevent traffic in women and children, and especially to secure that reasonable precautions are taken by steamship companies to prevent the evasion by female and minor emigrants of any examination instituted with a view to the protection of such persons by the authorities at the ports of departure or arrival of the ships.

III.

The Conference, Recalling the resolutions concerning the abolition of licensed or tolerated houses adopted by the Traffic in Women and Children Committee of the League of Nations in 1934 ; Considering that the Assembly, when adopting the report of the Fifth Committee in 1934, invited Members to give their earnest consideration to the resolutions of the Traffic in Women and Children Committee : (1) Declares itself in favour of abolition as a final goal ; (2) Recommends that educational measures be taken for the formation of afavourable public opinion in those countries in the East in which tolerated brothels still exist ; (3) Recommends that abolition should in all cases be anticipated or accompanied by administrative, medical and social measures in order to guarantee the permanence of its success.

IV.

The Conference, Having noted with approval the part that the voluntary organisations have played in forming the more enlightened public opinion which has influenced the policies followed by Governments in social questions to-day ; Having heard statements setting forth some of the beneficial activities of a number of these organisations ; Understanding that the organisations are willing to give their co-operation in ever greater measure in future and to extend their activities : Recommends that Governments should welcome practical co-operation with organisations established in their territories, in the belief that such action will be of value in securing progress along the right lines.

V.

The Conference, Having learned with interest of the success which has attended the appointment of women officials in a number of countries in the East : Recommends that Governments should consider the possibility of employing a larger number of women officials on work connected with the welfare of women and children as women with the necessary attainments and training become available.

VI.

The Conference, Recalling that the Assembly of the League of Nations in 1935 adopted a resolution authorising the Secretary-General of the League of Nations to endeavour to secure the services of a com petent person (preferably a woman), resident in the Far East or in a position to proceed there, who could act as agent of the League of Nations, provided that such an appointment involved no financial charge upon the League ; Noting with great appreciation the efforts that have been made by the voluntary organisations to achieve this end, but regretting that these efforts have had so far only a partial success ; Realising that this problem of the future of women of Russian origin is of the greatest importance, that it is a challenge to the social conscience of right-thinking people and that it has been especially brought to the attention of this Conference by the Assembly of the League of Nations : Desires to impress on the voluntary organisations and on other bodies and individuals interested in their work the absolute necessity of raising funds of an amount that will enable an agent of the League of Nations to be appointed in the Far East to take special charge of the co-ordinative measures necessary to secure the future of these women of Russian origin. — 107 — Resolution on the Printing of the Conference Minutes and of a Special Report. The Conference, Considering that this is the first international meeting of Government representatives of Eastern countries and of other experts convened to deal with the very important social problem of combating traffic in women and children ; Recognising that the information placed before the Conference is of great value for future work in this sphere ; Conscious of the necessity of enlightening and stimulating public opinion by the distribution of suitable material and information : Requests that the Minutes of the Conference be printed for reference and for the use of the authorities and that a report be prepared by the Secretariat of the League of Nations suitable for distribution to a wider public.

Resolution of Thanks to the Netherlands Government, the Government of the Netherlands Indies and the League of Nations.

The Conference wishes to express to the Netherlands Government its deep appreciation for the invitation to hold the Conference of Central Authorities in Eastern Countries at Bandoeng, and to express its gratitude to the Government of the Netherlands Indies for the generous assistance afforded by its officials to the Conference. The Conference also wishes to convey to the League of Nations the expression of its gratitude for the work done in combating the traffic in women and children.

* * *

The Conference decided to invite the President to bring this report to the knowledge of the Secretary-General of the League of Nations, with the request that it should be communicated to the Advisory Committee on Social Questions for observation and then submitted to the Council and Assembly of the League of Nations. The Conference ventures to express its earnest hope that the Council and the Assembly of the League of Nations will endorse these resolutions and recommend them to the Governments concerned.

(Signed ) A. T. B a u d , President. (Signed) E. E. E k str a n d , Secretary- General of the Conference. (Signed) C. Mu k e r je e , Vice-President. — iog —

INDEX

ABBREVIATIONS

Conf. = Conference Cttee. = Committee Govt. = Government Int. = International Resol. = Resolution

Page P age

Aberdeen Industrial School for Boys Committee 63 Bengal, replies to questionnaire re ...... 89-92

Abolitionist League, Japan...... 63 Béranger, Senator...... 5

Advisory Committee for the Protection and Bihar, replies to questionnaire re...... 88-92 Welfare of Children and Young People : collaboration with Traffic in Women and Bismuth, treatment of syphilis b y ...... 46 Children Cttee...... 7 Bombay, replies to questionnaire re...... 87-92 Agenda of the Conference...... 9, 104 Bon Pasteur Home...... 62 Aikoku Fujin K wai ...... 63

Akaghi, C. Britain, Great, and Northern Ireland, United Kingdom o! Delegate of Japan...... 102 List of delegates...... 101-2 Brothels and measures taken against...... 37 Replies to questionnaire...... 83-5 Migration co n tro l...... 27-8 Private organisations...... 63 Brothels Sex ratio, proposal for study...... 34 See also countries concerned Situation in J a p a n ...... 13 as Factor of the traffic...... 36, 42, 43, 49 Work of the Conference...... 74 Possibility of abolishing, in the East : de Alcambar Pereira, F. general d iscu ssion ...... 35-55 Questionnaire...... 82 Delegate of Portugal to representMacao... 102 Recommendation in favour of abolition. 54 (draft), Information Bureau in the Far E ast...... 18 72, 106 (text) Migration...... 31 Private organisations...... 61, 64 Bureau of the Conference All-Bengal Women’s Union...... 64 Com position...... 9 Questions referred t o ...... 65, 68 All-India Women’s Conference...... 54, 64 Bureau in the Far East, see Information Bureau American Bed Cross ...... 5-9

Anti-Kidnapping Society...... 12, 59, Burma, 62-3 replies to questionnaire re...... 88-92

Arsenobenzene, treatment of syphilis by 46 Butler, Josephine...... 5, 46

Asilo of Mapuga...... 40, 64 “ Casa de Benificência ” ,Macao ...... 31, 98

Assistencia à indigencia, Portuguese India. . . . 40 Central Authorities Association for Moral and Social Hygiene See also under countries concerned See also Shephard, Miss M. Questionnaire...... 81 Assistance to Russian refugee women 72 Recommendation of Conf...... 105 Representative at the Conf...... 103 Central Provinces, replies to questionnaire re. 88-92 Association for the Prevention of the Evils of Prostitution (Baishoka Bôsbi K y ô k a i) 63 Chen H. C., see Ho Chin Chen Association of Social Assistance, Cochin-China 12 Children “ Ati Soetji ” A ssociation...... 57, 62, 103Child marriages in India...... 39-40 See also Lekkerkerker, J. G. W. Chinese boys in theatrical troups in Siam ; difficulties caused b y ...... 30,33 Avenol, Joseph : message to the Conf...... 8 Kidnapping in M alaga...... 32 Sale of, in Indo-C hina...... 12 “ Bangkok Times ” : advertisement for Traffic in, in the Netherland In d ies...... 23-4 dancing-partners i n ...... 3°. 33 Children’s A c t s ...... 61 Baud, A. T. Delegate of the Netherlands for the China Netherlands Indies...... 102 Opening speech...... 8-9 See also Chu, K. C. President of the Conf...... 8 (election), 104 Ho Chin Chen Work of the Conf...... 75 Sung, F. T. Yen, Hilda Bayaderes caste, prostitution by women o f... 24, Brothels, regulations...... 35-6, 86 39- 4°. 53 Central a u th o rity ...... 12, 20, 85 — 110 —

Page Page China (cont.) Conference of Central Authorities in Eastern Concessions, foreign, and Int. Settlements Countries, Bandoeng, February 1987 for French Concession, see also Labrou- Acknowledgment of hospitality offered by quère, A. P. R. Netherlands Govt...... '8, 14, 15, 16, 73, Brothels, prostitution and dance halls in 74-75 . 76, io 7 (resol.j Extract from report by an int. cttee. 33 A g e n d a ...... 9, 104 Situation, and attempts to abolish... 12, Bureau 35-6, 48, 52-3, 85 Com position...... 9 Collaboration with Chinese authorities. 20, Questions referred t o ...... 65, 68 i °5 Closing speeches...... 73-6 Employment of women police...... 66 Private organisations, collaboration with Conclusions and recommendations adopted authorities...... 18, 19, 20, 62 by ...... 104-7 Russian refugee womenin . 33, 34, 69, 70, 86 Convocation, Council resolution of Oct. 10, Sex ratio of foreign population...... 69 1936...... 101 Delegation to the Conference...... 102 Delegates Education, improvement in ...... 31, 33 Credentials, see that title Emigrants from, measures for protection of. 16, List ...... 101-4 19, 20, 27 Governments and organisations represented General situation and measures taken 11-12, on ...... 10, 101-4 16, 17, 85 Migration control.. 16, 19,20, 27, 31-2, 69, 85 Minutes, resolution re printing...... 107 Monogamy, legalisation in ...... 26, 29, 31 Opening speeches...... 5-8, 8-9 Organisations represented at the Conf 103 President, see Baud, A. T. Passports...... 19, 20, 27, 31, 32, 33 Procedure, rules o f...... 10, 77 (text) Private organisations, collaboration with Report authorities...... 58, 59, 85 A d o p tio n ...... 72 Prostitution...... 11, 17, 20, 35, 36, 46 Resolutions re preparation and R ehabilitation...... 35 communication of...... 107 Reply to questionnaire...... 85-6 Text ...... 101-7 Russian refugee women, measures taken by Retrospect of facts leading up t o ...... 5-9 the Govt...... 69-70, 71 Vice-President, see Mukerjee, Mrs. S. C. Social workers, training o f...... 66 Women Emancipation o f...... 25, 31, 33, 65-6 Conferences on Traffic in Women and Children Officials, employment in welfare services 86 Held before 1937...... 5-7, 56, 71 at Hong-Kong, 1935...... 16, 20, 21, 27, 31, 34 China Child Welfare Association...... 59 Local, recommendation re holding of...... 65, See also Ho Chin Chen 105 (resol.) Yen, Mile. Hilda Proposal that they be held everythree years. 56

Chinese Passengers Act, 1 8 5 5 ...... 21 Coote, Alexander...... 5,6

Chinese Public Dispensaries Committee...... 63 Correia, A . C. 6 . S. C h u ,K. C. Delegate of Portugal to represent Portuguese Secretary to the delegation of China...... 102 In d ia ...... 102 Work of the Conf...... 74 Member of Credentials Cttee...... 9 Abolitionism and measures necessary...... 53 Churches : attitude towards the traffic...... 55 Finger-prints...... 18-19, J9 General situation...... 15 Coerper, 0 . Information Bureau in the Far East...... 18 Liaison o fficer...... 18 Expert from the Int. Criminal Police Migration...... 24, 25 Com m ission...... 104 Private organisations...... 64 Far Eastern Bureau to combat traffic, Prostitution in Portuguese India...... 39-40 proposals r e ...... 17 Repatriation of girls...... 21 Women officials, employment in the Women officials, employment...... 67 Netherlands Indies...... 67 Work accomplished by the Conf...... 73 Collaboration between police and other authorities in different countries responsible Counterfeit currency : Far East Conf. and for measures concerning prevention of the resu lts...... 17 traffic See also General situation, etc., under Credentials of Delegates countries concerned Appointment of Cttee...... 9 Discussion...... 10-17, 18-21 Reports of Cttee...... 10, 18 Questionnaire...... 81 Recommendation of the Conf. 72 (adopted,), 104-5 Delegates Referred to a Sub-Cttee...... 21 Credentials, see that title Collaboration between police and other List o f ...... 101-4 authorities and private organisations See also under countries concerned Delhi, replies to questionnaire re...... 88-92 Discussion ...... 55-65 Questionnaire...... 82 “ De Propaganda Fide ” , Sacred Congregation, Recommendation of Conf 60, 72 (adoption), representative at the Conf...... I03 106 (text) Referred to Sub-Cttee...... 65 Detectives, W om en...... 68 Resolution recommending periodical consultations between governments and private organisations...... 65 Devadasi caste, prostitution by women of. .. 15. 1 ll- 39, 4°> 97 Committee on Traffic in Women and Children Collaboration with the Advisory Cttee. for the District Watch Committee...... 63 Protection and Welfare of Children and Young People...... 7 Door of Hope...... 62 Enquiries carried out by ...... 6, 22, 30, 35, 36, 38, 40, 43, 62 Economic conditions Sub-Cttee. to examine resolutions adopted by 53 Effect on migration...... 26, 3° Concessions, foreign, in China, see under China as Factor in prostitution...... 33, 44, 53, °5 — Ill

Page Page Education “ Holy House of Mercy ” , Goa...... 40, 64 See also countries concerned Hong-Kong Campaign against brothels...... 54 Lack of, as cause of prostitution...... 48 See also North, R. A. C. Moral, recommendation...... 38 Brothels, regulations r e ...... 45, 52, 84, 85 Sexual education, see that title Central authority...... 10, 84 by Siamese Red C ro ss...... 6 0 General situation and measures taken. ... 10, 16, Work accomplished by the Salvation Army. 49 20, 84-5 Migration regulations and control. . 21-2, 25, 27, Ekstrand, E. E. : Work accomplished by the 32, 34, 52, 83 Conf...... 76 Private organisations, collaboration with authorities...... 63, 85 Enquiries carried out by Cttee. on Traffic in Prostitution ...... 13, 45, 85 Women and Children...... 6, 22, 30, 35, Reply to questionnaire...... 84 36, 38, 40, 43, 62 Russian refugee women, situation in ...... 85 Enthoven, M. Salvation Army, activities...... 52, 85 Closing speech of the Conf...... 73 Women officials, employment in welfare Opening speech of the Conf...... 5-9 services...... 85 Finger-prints, as means of identification 13, Hospicio of Margad...... 40, 64 16, 18-19, 105 (resol.) Hsiang-Shan Children’s Homes of China 12, Floods in China, measures against...... 12, 59 59, 66, 103 See also Wu Kuan, Mile. Jui Foreign Women’s H o m e ...... 62 India France See also Mukerjee, Mrs C. Delegate to the Conf...... 102 Brothels, situation...... 31, 42, 91-2 Reply to questionnaire...... 86-7 Central authorities...... 15,88-9 General situation and measures taken. . . . 15-16, Fransz, Mlle. L. A. 87-92 Migration regulations ...... 16, 30, 89-91 Representative of the Pan-Pacific Women’s Organisations represented at the Conf 103 Association and the World Young P assp orts...... 15, 16, 30 Women’s Christian Association ...... 103 Private organisations, collaboration with Pan-Pacific Women’s Association, work of. 58 au th orities...... 64 Proposals for collaboration...... 58 Reply to questionnaire...... 87-92 Russian refugee women...... 92 French Concession of Shanghai Salvation Army, activities...... 64 See China : Concessions, etc. Sex r a tio ...... 31, 88 and Labrouquère, A. P. R. Women officials, employment...... 67, 91

General Charities Fund Committee...... 63 Indo-China See also Labrouquère, A. P. R. Goanese, prostitution among...... 24, 31, 40, 97 Brothels, regulations...... 36, 52-3, 87 Central authority ...... 86 Gonorrhoea Education...... 12, 36, 37 See also Venereal disease General situation in, and measures taken.. 12-13, in Netherlands Indies A rm y...... 46, 80 86-7 Migration policy...... 22-3, 32, 86-7 Groene veldt, H. P assp orts...... 12 Private organisations, collaboration with Delegate of the Netherlands for the authorities...... 63, 87 Netherlands Indies...... 102 Prostitution ...... 12, 36-7, 87 Immigration into the Netherlands Indies. . . 28-9 R ehabilitation...... 36, 37, 62 Reply to questionnaire...... 86-7 Gunning, Miss C. Residence of foreigners in the territory, Representative of the World Young Women’s regulations...... 22-3 Christian Association ...... 103 Russian women refugees...... 87 Brothels, abolition o f...... 47 Sale of children...... 12 " Vrouwenbond ", work o f ...... 58-9 Sex ratio...... 32 ' Women officials in public services...... 66 Venereal disease...... 37 Women Guthrie, Miss Anne Officials, employment...... 66, 87 Observer of the U.S.A. at the Conf...... 102 Situation and education i n 12, 36, 37 Women officials, employment in the Philippines...... 67 “ Indo-Europeesch-Verbond Vrouwen-Organi- Work of the Conf...... 74 satie ” ...... 58, 59-60, 104 See also Razoux Schultz-Metzer, Mme. Hainan Emigration of women from ...... 26, 100 Information Bureau in the East Traffic a t ...... 21, 30 Committee to examine Appointment ...... 17-18 Haisho Eenmei (Abolitionist League)...... 63 R eport...... 78 Proposals for creation and discussion. 17, 18-21 Half-castes, prostitution am ong...... 36, 62 Recommendation of the Conf...... 104-5

Hindu women, prostitution among...... 15, 25, International Abolitionist Federation...... 5, 6, 7 39, 40, 97 Ho Chin Chen International Agreement for the Suppression of Secretary to the delegation of China...... 102 the White Slave Traffic, Paris, 1904 ...... 6, 12, Representative of the China Child Welfare 13- 15, 5i Association...... 103 Brothels...... 48, 54 (resol.) International Criminal Police C om m ission.... 104 Detectives, w o m e n ...... 68 See also Coerper, O. Information Bureau in the Far East 18 Liaison officer to assist authorities. . . . 18, 19-20 International Missionary Council...... 103 Migration co n tro l...... 22, 31-2 See also Slotemaker de Bruine Passports, issue o f ...... 20, 31, 33 Private organisations in China...... 59 International Settlements in China, see under ■situation in China ...... 17 China — m

Page Page Iraq, reply to questionnaire...... 92-3 Liaison officer to be appointed by the League to advise and assist authorities in various Istanbul, Russian refugee women at ...... 71, 72 countries Proposals and discussion...... 15, 18, 19-20 Japan Referred to Sub-Cttee ...... 20 See also Akaghi, C. Brothels...... 37-8, 94-5 Lord, H. Central au th orities...... 93 Representative of the Salvation Army 103 Delegation to the Conf...... 102 Attitude of the Salvation Army towards Education...... 63 prostitution ...... 48-9 General situation in, and measures taken . . 13, 93 Private organisations...... 65 Migration, control o f ...... 27-8, 93 Women officials in public services...... 66 Passports, delivery and control...... 27 Private organisations, collaboration with the authorities...... 63, 65, 93 Macao Prostitution...... 37, 49, 94 See also de Alcambar Pereira, F. Public opinion, enlightenment...... 63 Sampaio, C. R ehabilitation...... 63 B r o th els...... 38-9, 51-2, 99 Reply to questionnaire...... 93-5 Central authority...... 14, 98 Russian refugee women...... 95 General situation in, and measures ta k e n .. 14-15, Salvation Army, activities...... 63 98 Waitresses in cafés, prostitution by ...... 49 Migration control...... 24, 31, 98 Women officials...... 94 M ission s...... 61 Obscene publications...... 52 Java, see Netherland Indies Private organisations...... 61, 98-g P rostitution...... 38-9, 99 R ehabilitation...... 31 Joint Committee ol Women’s Organisations at Russian Refugee women ...... 24, 70 Shanghai ...... 57-8 Souteneurs...... 99 Venereal d iseases...... 52, 99 Jordan, A. B. Women officials...... 99 Delegate of the United Kingdom to represent the Govt, of the Straits Settlements and Madras, replies to questionnaire re...... 87-92 Federated Malay States...... 101 Member of Credentials Cttee...... 9 Major International Christian Organisations... 56 Brothels...... 42-5, 50, 54 (resol.) China, situation in ...... 20 Major Women’s International Organisations .. 56 General situation and measures taken.. 11, 16-17 Information Bureau in the Far East...... 17 Malaya, see Straits Settlements and Federated (proposal), 18, 19, 21, 78 (report) Malay States Liaison o fficer...... 19 Migration, statistics and control.... 25-7, 32, 34 Private organisations...... 60 (resol.) 63 Malthe, Mlle. M. R ep atriation ...... 21 Former member of Commission of Enquiry Russian refugee women in the Far East : into Traffic in the Far East...... 104 resolution re appointment of a League Proposal that Conferences on the Traffic be A g e n t...... 72 held every three years...... 56-7 Theatrical artists...... 33 Russian refugee women situ a tio n ...... 71 Venereal diseases...... 43-4, 79 (statistics) Women officials, employment in public Manchuria : Russian refugee women in 68, 71 services...... 67-8 Work accomplished by the Conf...... 73-4 Manila : Employment of women officials 67 Work of certain organisations not represented at the Conference...... 60 Mapuga H o m e ...... 40, 64 Kidnapping Margâo H osp ice...... 40, 64 Anti-Kidnapping S ociety...... 12, 59, 62-3 of Chinese children in Malaya...... 31, 32 “ Marriage ” as means of smuggling Chinese of Girls for prostitution in foreign concessions women into the Netherlands Indies... 14 in Shan ghai...... 20 Marriages, child...... 39-4° Labrouquère, A. P. R. Delegate of France to represent the Indo- “ Melas ” (fairs) : protest re opening of Chinese Union and the French brothels during...... 54 Concession of Shanghai...... 102 B ro th els...... 36-7, 52-3, 54-5 (resol.) Meyer, J . A. J. Collaboration between French concessions and China...... 20 Delegate of the Netherlands for the General situation and measures taken 12-13 Netherlands In d ies...... 102 Migration policy ...... 22-3, 32 B roth els...... 45-6, 51 Private organisations, collaboration with Children, traffic in, in the Netherlands au th orities...... 62 In d ie s ...... 23-4 Russian refugee women, in Indo-China and General situation and measures taken i 3 'I4 French concession in Shanghai...... 70 Private organisations...... 61 Women officials...... 66 Sex ratio, study recommended...... 32 Work of the Conf...... 74 Migration League ot Nations See also countries concerned General discussion...... 21-35 Agent of, to assist and advise authorities Questionnaire...... 82 see Liaison officer, etc. Recommendation of the Conf. re control Agent to deal with question of Russian of ...... 72 (adopted), 105-6 Refugee Women, see under Russian Referred to part II of the agenda...... 20, 21 Refugee Women Referred to Sub-Cttee...... 35 Inclusion of traffic question among its activities ...... 6, 7 Mlsericordia ol Goa ...... 40, 64

Lekkerkerker, J. G. W. Missions Representative of the " Ati Soetji " ...... 103 See also under countries concerned Activities of the “ Ati Soetji ” ...... 57 List of missions represented at the Conf.... I03 — ÎÎ3

Page Page de Moulin, Tlberghien, see Tiberghien de Pereira, F. dc Alcambar, see de Alcambar Moulin Pereira, F. Mukcrjee, Mrs. C. Perkins, Miss J. B. Delegate of India ...... 102 Representative of the World Young Vice-President of the Conf...... g (election), 104 Women's Christian Association...... 103 Brothels...... 42, 54 (resol.) Brothels in Int. Settlement of Shanghai. ... 48 General situation and measures taken 15-16 Organisation started by Women’s Organisa­ Migration regulations. 30 tion at Shanghai...... 57-8 Private organisations. 64 Russian refugee women in Shanghai...... 68-9 Women officials...... 67 Work of the Conf...... 74 “ Perkoempoelan Pembasmian Perdangan Perempoean dan Anak-Anak ” ...... 62, 104 Mutual Association lor Social Assistance, Cochin-China ...... 87 Philippine Islands Women officials. 67 Nanking Children’s H om e...... »...... 66 Photographs of offenders.... 13, 15, 16, 18-g 105 National Child Wellare Association ol China. 12, 66 Po Leung link.... 30, 50, 57, 60, 63, 67, 84-85 National Purification Union, Japan ...... 63 Police Neosalvarsan, treatment of syphilis by ...... 49 Collaboration between authorities and with Netherlands private organisations, see Collaboration, etc. Delegation to the Conf...... 102 W o m en ...... 66, 67 Reply to questionnaire...... 95-6 Poor Belief of Nova Goa...... 64 Netherlands Indies See also Baud, A. T. Portugal Groeneveldt, H. Meyer, J. A. J. Delegation to the Conf...... 102 Tiberghien de Moulin, P. L. Reply to questionnaire for Portuguese Brothels...... 13, 45-6, 49, 51, 62, 96 In d ie s...... 97-8 Central authority...... 95 Children, traffic in ...... 23-4 Portuguese India General situation in, and measures taken. . 13, 95 See also Correia, A.C.G.S. Government Bureau, activities . 6, 13-14, 23, 95 Brothels ...... 40, 98 Migration regulations and control...... 13, 14, Central authority...... 97 28-9, 51» 96 General situation in, and measures taken. 15, 97 Obscene publications...... 13, 14 Migration, statistics and control...... 24, 97 Organisations represented at the Conf 103-4 M ission s...... 64 Private organisations, collaboration with Obscene publications...... 53 authorities...... 6, 57, 61, 96 Private organisations collaboration with Prostitution in ...... 6, 13, 29, 51, 61, 62, 96 authorities ...... 64, 97-8 R ehabilitation...... 58 Prostitution ...... 15, 16, 24, 39-40, 53, 97 Russian refugee wom en...... 96 Russian refugee women...... 98 Salvation Army, activities...... 57, 62 Women officials...... 67, 98 Sex ratio of Chinese immigrants...... 33 Souteneurs...... 62 Venereal disease...... 46, 50, 80 President ol the Conference, see Baud, A. T. Women officials...... 67, 96 Preventive work against starting prostitution, North, R. A. C. recommendation...... 49 Delegate of the United Kingdom and rep. of Private Organisations the Govt, of Hong-Kong...... 102 Brothels...... 45, 52 See also organisation concerned General situation and measures ta k e n .. .. 10-11, Collaboration with police and other 16, 20 authorities, see Collaboration, etc. Migration regulations and control 20, 21-2, List of associations represented at the Conf.103-4 25. 32, 34 To refrain from political action...... 65 Private organisations...... 63 Procedure of the Conference, rules of 10, 77 (text) North-West Frontier Province, replies to questionnaire re ...... 88-92 Pro Juventute Organisations ...... 23, 6 i, 62

Obscene Publications Prostitution See also countries concerned See also under countries concerned Campaign against by Salvation Army...... 57 Abolitionist sy ste m ...... 39, 49 Opium : measures taken against and its effect Aiding or abetting by a female, legislation on the traffic...... 12, 17, 20 against ...... 43 Bayaderes caste ...... 24, 39, 40, 53 Orissa, replies to questionnaire re...... 88-92 Devadasi caste ...... 15, 16, 39, 40 Difference between traffic and prostitution. 43 Pan-Pacific Women’s Association ...... *58 among Goanese ...... 24, 31, 40, 97 among Hindu women .... 15, 24, 25, 39, 40, 97 See also Fransz, Mlle. L. A. International effect on traffic ...... 43 Japanese, in Singapore and Hong-Kong, etc. 13, 27 Pao-Cha System...... 36 Kidnapping and sale of girls for, in foreign concessions in Shanghai...... 20 Paris Agreement of 1904. ___ 6, 12, 13, 15, 51 Measures to prevent entry of foreign prostitutes, see Migration under countries Paris Convention of May 4 , 1 9 1 0 ...... 51 concerned by Minors...... 62 “ Pasoendan Istri ” ...... 62 Opium as cause o f ...... 12, 17, 20 Prohibitionist system...... 39 on Boats, see under Vessels Regulation condemned by medical confe­ rence ...... 5 Passports, Delivery and Control, see under Regulationist system ...... 39, 43> 47 countries concerned by Waitresses in cafés ...... 49, 53 - iî4

P ige Page “ Publie Morality Acts ” 1 8 1 0 ...... 51, 6 1 Sex Ratio See also under countries concerned Publie Opinion : Influence in question of traffic Study recommended...... 32, 34 55. 58, 60 (resol.) 63 Sexual Education Punjab, replies to questionnaire re...... 88-92 See also under countries concerned Purlflcationists’ Association (Kakusei kai).... 63 Difficulty of obtaining suitable literature . . 44-5 by Pan-Pacific Women’s Association...... 58 Questionnaire regarding Recent Development Recommendations r e ...... 38, 49 in Eastern Countries in Secondary schools...... 57 Replies of Govts. Shephard, Miss M. Discussion ...... 10-17, 18-21 Text ...... 81-101 Representative of the Association for Moral T e x t ...... 81-2 and Social Hygiene...... 103 Fund to assist Russian refugee women...... 72 Illness of, and message of sympathy 44, 45 Ragout, Minister : statement b y ...... 46 Prostitution, proposals for abolition...... 47 Sex ratio in India...... 1...... 31 Rape, effect of abolition on number of cases .. 43 Social workers, training o f ...... 64-5

Razoux Schultz-Metzer, Mme. C. H. Siam Representative of the " Indo-Europeesch- See also Varavam, Prince S. V. Verbond Vrouwen-Organisatie at the Conf...... 104 Brothels ...... 40-2, 100-1 Resolution recommending periodical consul­ C entral a u th o rity ...... 15, 100 tations between governments and Chinese boys in theatrical troups, difficulties private associations...... 65 caused b y ...... 30, 33 Russian refugee women, situation...... 70-1 Delegation to the Conf...... 102 Work of the " Indo-Europeesch- V'erbond General situation in, and measures taken. 15, 99-100 Vrouwen-Organisatie ” ...... 59-60 Migration control ...... 15, 29-30, 99, 100 Missions ...... 60, 100 Monogamy, legalisation of ...... 29 Rehabilitation Passports ...... 15, 30 See also under countries concerned Private organisations and authorities .. 60-1, 100 Prostitution in ...... 30, 40, 100 Difficulty in countries with brothels 47 Reply to questionnaire...... 99 Russian refugee women ....'...... 101 Religious origin of prostitution in Portuguese Sex ratio ...... 29, 33 In d ia ...... 15, 16, 39-40, 53, 97 Sexual education...... 41 Souteneurs...... 41 Repatriation of girls at expense of port autho­ Venereal diseases ...... 41, 53 rities : question submitted by Hong-Kong Women officials...... 100 Conf...... 21, 31 Siamese Red Cross...... 60 Rescue work Sind, replies to questionnaire r e ...... 88-92 Need for more homes...... 54. 64 by Various associations, see association concerned Situation and recent developments in various countries, see under countries concerned Rules of Procedure of the Conference 10, 77 (text) Slave girls, prostitution by, in China...... n , 12 Russian Refugee Women See also under countries concerned Slotemaker de Bruine, N. A. C. Agent or committee to be appointed by Representative of the Int. Missionary Council 103 the League Task of missions in connection with work Proposals and discussion ...... 69,70, 71 against the tra ffic ...... 55 Recommendation of Conf. 72 (draft), 106 Discussion ...... 68-72 Social workers, training o f ...... 64-5, 66 Fund started by Association of Moral and Social Hygiene to assist ...... 72 Society for the Protection of Children In India. 64 Questionnaire ...... 82

Russian Women’s Home 6 2 Souteneurs, see under countries concerned

Salvation Army Stewart C. See also Lord, H . Representative of the Salvation Army I03 Stew art, C. Activities of the Salvation Army in the Wille, W. A. Netherlands In d ies...... 57 Principles...... 48, 65 Work accomplished by. 48-9, 50, 52, 57, 62, 63, Straits Settlements and Federated Malay States, 6 4 , 85 See also Jordan, A. B. Sampalo, C. Brothels and measures taken for their , abolition...... 42-5, 49. 5°> °4 Delegate of Portugal to represent Macao... 102 Central authority...... 3 Brothels ...... 38, 51-2, 55 (resol.) Education of Chinese in ...... 32’ 33 General situation, and measures taken ... 14-15 General situation, and measures taken. n , 1 „ 7’ Migration control. 24 83-4 R epatriation...... 21 Migration control and statistics.... 11, 25-7, §3 Russian refugee women, situation. 70 Private organisations, collaboration with W ork of the Conf...... 74 authorities...... 3 Prostitution ...... 43 von Schmieden, M. : Telegram from, expressing Religious organisations, work b y ...... best wishes to the Conf...... 18 Reply to questionnaire ...... ° 3'4 Salvation Army, activities ...... 2, Sehultx-Metzer, Mme., see Razoux Schultz- Sex ratio ...... 25, 26, 31, 33- 3 Metzer, Mme. C. H. Sexual education...... ; • • A i Venereal diseases...... 43-4, 79 (staHstm; SelHer draft law : application in Indo-China.. 3 7 Women officials employed ...... 67'° - 4 Page Page Sung, Fartean T. Vigilance Association...... 64 Delegate of China...... 102 Brothels in C h in a...... 35-6 Voluntary Associations, see Private Organisa­ Chinese emigrants,measures for protection. 27 tions General situation and measures taken.... 11-12 Russian refugee women in China, measures Waitresses in cafés, prostitution among.. 49, 53, 70 taken by the Govt...... 69 Sub-Cttee. to examine resolutions of Cttee. on “ Wayang ” group : Transport of Chinese Traffic in Women and Children, proposal 53 women b y ...... 1 4 , 29

Syphilis Wille, W. A. See also Venereal Diseases Representative of the SalvationArmy 103 in Java...... 49 B ro th els ...... 4 9 in the Netherlands Indies Army...... 46, 80 Transmission, a crime punishable by law. 53 Women Officials Treatment o f ...... 46, 49 See also countries concerned Tea-gardens, recruitment of labourers and sex D iscu ssion ...... 65-8 r a tio ...... 31 Question included in agenda of Conf...... 7-8 Questionnaire re...... 82 Telegraphic Transmission of Finger Prints... 18-19 Recommendation of the Conf 72, 106 (text) Referred to Bureau...... 68 Teratology as cause of prostitution...... 53 Women Police ...... 66, 67 Theatrical and circus artists. 15, 16, 24, 29, 30, 33, 89, 105 (recom.) Women’s Association for the Reform of Public Morality (Fujin Kyôfûkai) ...... 63 Tiberghien de Moulin, P. L. Women’s Industrial Home...... 50 Expert on delegation of the Netherlands for the Netherlands Indies ...... 102 Statement re experience in respect of Woodsmall, Miss R. F. venereal disease in the Royal Nether­ Representative of the World’s Alliance of lands Indies Army ...... 46, 50, 80 Young Men's Christian Associations and the World Young Women’s Christian “ Tiochiu ” troupes...... 33 Association at the Conf...... 103 Brothels, abolition o f ...... 46-7 Tung Weh Hospital ...... 63 Private organisations...... 55-6 Russian refugee women at Istanbul...... 71 Union of Soviet Socialist Republics Women officials in public services...... 66 Prostitution, measures taken against 48 Work of the World Young Women’s Christian Association, and other Christian associa­ United Kingdom of Great Britain and Northern tions ...... 56 Ireland, see Britain, Great, etc. World Red Swastika Society o! China.. 12, 59, 103 United Provinces, replies to questionnaire re. 87-92 United States of America World Young Women’s Christian Association. 56, 58 See also Guthrie, Miss Anne See also Fransz, Mlle. A. L. Gunning, Miss C. Observer at the Conf...... 102 Perkins, Miss J. B. Woodsmall, Miss R. F. Varavarn, Prince S. V. Delegate of Siam ...... 102 World’s Alliance of Young Men’s Christian Member of Credentials C ttee...... 9 Associations...... 56, 60 Brothels...... 40-2, 54 (resol.) General situation and measures taken...... 15 See also Woodsmall, Miss R. F. Migration control ...... 29-30, 35 Private organisations...... 60-1 Wu Kuan, Mile. Jul Repatriation...... 21 Venereal diseases...... 53 Expert on the delegation of China...... 102 Work of the Conf...... 74 Representative of the Foyer d’Enfants, H siang-Shan...... 103 Venereal Diseases Part played by women in public life in C h in a ...... 65-6 See also under countries concerned Clinics in Indo-China...... 37 Wu lien Teh, Dr. : Article on venereal Compulsory declaration...... 53 disease...... 48 Effect of abolition of licensed houses on. .. 41, 42 Experience of the Royal Netherlands Indies Army in respect o f ...... 46 Yen, Mile. Hilda Medical control : brothels not necessary for. 49 Secretary to the delegation of China...... 102 Representative of the China Child Welfare Association...... 103 Arrangement between Govts, of Hong- Int. Settlements and concessions in China : Kong and Singapore for indication of extract from report re prostitution, etc. suspected women on ...... 22 i n ...... 33 Arrests on board...... 21, 105 Liaison officer, proposal to refer question to clandestine passengers...... 34-5 a sub-Cttee...... 20 passenger lists ...... 22, 34, 35, 84 Migration...... 33-4 Supervision of Russian refugee women in China...... 69-70 Measures taken ...... 27, 29, 32, 34 Questionnaire...... 82 (note) Young Men’s Buddhist Association...... 60 Published previously

ANNUAL REPORTS FROM GOVERNMENTS. Summary of Annual Reports received from Governments between January 1st, 1936, and the First Session of the Advisory Committee on Social Questions (April 15th, 1937). (C.316.M.212.1937.IV.) (Ser. L.o.X. P. 1937.IV .6)...... 1/- So.25

FAMILY ALLOWANCES. Report by the International Labour Office on Family Allowances in relation to the Physical and Moral Well-being of Children. (Ser. L.o.X. P. 1928.IV.10) ...... 1/- So.25

AGE OF MARRIAGE-BLIND CHILDREN. The Age of Marriage and the Age of Consent. (Ser. L.o.X. P. 192S.IY.20). out of print Protection of lîlind Children. (Ser.L.o.X. P.1928.IV .4 )...... gd. So.20

SPECIAL JURISDICTION FOR MINORS. AUXILIARY SERVICES OF JUVENILE COURTS. Auxiliary Services of Juvenile Courts. (Ser. L.o.N. P.1931.IY.1) . . . 5/- Si.25

JUVENILE COURTS. Organisation of Juvenile Courts and the Results attained hitherto. Published by the League of Xations, in collaboration with the International Penal and Penitentiary Commission. (Ser. L.o.X. P. I935-IV.5) 4/- Si.00

ERRING AND DELINQUENT MINORS. Institutions for Erring andDelinquent Minors. (Ser. L.o.X. P. 1934.IV.1). 7/6 S2.00 Enquiry into the Question of Children in Moral and Social Danger. Report of Mile. Chaptal. (Ser. L.o.N. P. 1934.IV .8 ) ...... 4 /- S i.00

CHELD WELFARE COUNCILS. (Denmark, Norway, Sweden.) (Ser. L.o.X. P. 1937.IV. 1 ) ...... 2/6 So.60

RETURN OF CHILDREN AND YOUNG PEOPLE TO THEIR HOMES. Model Agreement regarding the Return of Children and Young People to their Homes. (Ser. L.o.N. P.19 3 1 .IV .5 )...... 6d. So. 15

ILLEGITIMATE CHILDREN Study of the Position of the Illegitimate Child based on the Information communicated by Governments. (Ser. L.o.N. P. 1929.IV,5) .... 3/3 So.80 Official Guardianship of Illegitimate Children. (Ser. L.o.X. P. 1932.IV.1). gd. So. 15 Disclosure of Illegitimacy in Official Documents. (Ser. L.o.X. P. 1933. IV .2) 6d. So. 15 AUTHORISED AGENTS FOR THE PURIFICATIONS OF THE LEAGUE OF NATIONS

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