LABOUR CONDITIONS IN CEYLON, M.AURITIUS, AND MALAYA REPORT BY·· MAJOR G.. ST. ]. ORDE BROWNE, C.M.G., O.B.E . (Labour Adviser to the Secretary of State for the Colonies) -· Presented by Ike Secretary of Stale for lhe.Colonies to Parliaoneni by Command of His M ajesly February, 1943 LONDON PRINTED AND PUBLISHED BY HIS MAJESTY'S STATIONERY OFFICE To be purchased directly fro~ H.M. STATIONERY OFFICE at the following addresses: York HoUse, Kingsway, London, W.c;,.z; 120, George Street, Edinburgh, z; 39-41' King Street, Manchester 2. ; 11 St. Andrew's Cre.ce.nt, Cardiff J · So, Chichester Street, Belfast ; • or· through any boolueller 1943 Price 2s. od. net Cmd. 6423 CONTENTS. Page < ' INTRODUCTORY LETTER . - 3 ITINERARY ••• 4 REPORT ON CEYLON ••.• 7 REPORT ON MAURITIUS~ 53 ~ REPORT ON MALAYA ••• gr ' 3 ·THE CoLoNIAL OFFICE, LONDON. 3Ist March, I!)42. The Ri~ht Honourable VISCOUNT CRANBORNE, P.C., M.P. MY LoRD, I have the honour to present herewith my report on labour conditions in Ceylon, Mauritius, and Malaya, which were the count'ries included. in my terms of reference. Extent of Investigation.-! append an itinerary of my travels in each Colony, showing distances.covered and investigations carried out. Form of Repore ....,..Owing to the marked differences between the conditions and circumstances of the three Colonies, I presen~ my report in three separate sections. Acknowledgment.-! desire to expres8 my appreciation of the help afforded me in my work by the Governments concerned, and also by the local Associa­ tions, Chambers, etc., as well as numerous members of the public, who in many cases went to much trouble to facilitate my task. I carried out my investigations informally, and thus had the advantage of a large amount of confidential· information. · I was accompanied throughout my tour by MI .. H. Nield of the Colonial Office staff, who was of great assistance to me in the collection of material and the ·Compila~on of my report. · I have the· honour .to. be, My Lord, Your Lordship's most obedient servant, G. ST. J. 0RDE BROWNE, Labour Adviser . • 2339T A• 4 ITINERARY. .Ceylon. 66 days were spent in Ceylon. Approximate distances travelled-by road .. 2,900 miles . by rail .. 220 miles Estates, mines, factories, etc., visited 32 InStitutions visited . · •·. 8. Harbours 3 ,Meetings with employers and employees 34 Other .Conferences · I3 Mauri1:J.us. 28 days were• spent in Mauritius. • Approximate distances travelled-by road .. 300 miles. Estates, factories, and workshops visited .. n;. Institutions 9 Meetings With employers ~nd employees- .... I3 Other Conferences · - · 'II Malaya. 45 days were spent in Malaya. Approximate distances travelled-by road ... 6so miles. · ·byrail ... 8oo miles. · Estates, mines, factories, etc., visited · 39 Institutions visited 9 HarbourS and Naval B;.,;e ... 3 Meetings with etnployers and employees .... 16 Other Conferences 22 (In addition to the above, numerous discussions and memoranda furnished valuable information.) TABLE OF CONTENTS. CEYLON. Paragraph Paragraph INTRODUCTORY. Tim PRESENT PosiTION, Geographical · ... · I Two forms of labour .. .. I6 Communications 2 The villager .. I 7 Administration 3 The immigrant labourer r 8 Difference in status .. I9 & 20 · Other elements .. 21 , SURVEY OF PAST CONDITIONS; , . Preferential treatment of Cey- · 22 Early history •.. .,. .. 4. & 5 lonese. The Sinhalese •. • · • 6 Capacity of the labourer .. 23 'Development of plantations .. 7 Imported Indian labour 8 CoNDiTIONs oN PLANTATIONS. Introduction of tea · 9 Varieties <?f crop 24 Development of companies .. ro Tea area 25 Introduction of rubber rr Characteristics 26 Indian labour ... 12 Establishment of rubber 27 Connection with India 13 Characteristics 28 Migration ma.itltained .. I4 Cocoimts 29 Effect of the war . r 5 Coconut products ... 30 5 Paragraph Paragraph <:oNDITIONS IN THE MiNES. FiNANCIAL REsOURCES OF Methods 31 COMPANIES. Conditions underground 32 Need for consideration 69 Gem pits·· · 33 Peculiarities 70 Supervision ... 34 Analysis 71 · Risk involved 72 THE KANGANY SYSTEM. Fluctua~ions in prices 73 · Description 35 Speculal:!ve nature of products 74. Importance :··.· 36 'Decadence • 37 WAGES AND CosT OF LIVING• Survival 38 Difficulty of assessment Variations 39 75 Conflicting opinions ... Existing records 76 40 Other estimates Suggestions for improvement 41 77 , Gradual change necessary. 42. Estimated 'cost ... 78 ' . Statistical organisation 79 Rates of pay on plantations ... So 'I'HE'TUNDU SYSTEM. Recent increases Sr Description 43. Comparison with Southern. 82 Objectionable features and 44 India. abolition: Privileged ],>Osition of Tamil 83 labour. HousiNG. • · Character ·... 45 WAGE·S.ON MINES. Arrangements , for supervision 84 URBAN HouSING CONDITIONS.. Colombo , 46 .CONCLUSIONS. )?lans for iniprovement 47 Need for higher standard 48 Inadequate pay for urban. 85 workeis .. Effect of the Indian immigrant 86 HOUSING ON PLANTATIONS. The rent factor 87 Various types ... ... 49 Need for reduction in rents 88 Materials used... 50 Effect of unemployment 89 Sanitation .... sr Expenses of estate workers 90 Water supply . 52 Position of the villager 91' Recreations 53 Conditions on estates .. 92 . Difference between high !'Ild 54 Connection with dietaiy 93 low country. Obstacles to improvement 94 HousiNG oN MINES. UNEMPLOYMENT. Limited requirements · 55 Three forms .95 MEDICAL ARRANGEMENTS. In Colombo 96 Particulars of Emplo:Yment 97 StatisticS 56 Exchange.' Adequacy 57 . Relief works g8 Supervision _ 58 Numbers involved 99 Venereal disease clinics 59 Preferential treatment of Ioo Supervision of immigrants 6o" Ceylonese. Surplus plantation labour IOI EMPLOYERS' RESPONSIBILITIES. Unemployment in rural areas ... I02 Evolution ... - 6r Areas affected . 103 Anomalies of present position 62 Possibilities for extended 104 Provision of housing . 63 cultivation. Possibilities of grouping 64 The malaria difficulty.:. · IDS Difficulties .65• Organisation of settlements -... ro6 Security of tenure 66 Value of co-operative societies 107 Suggestions for improvement.. , 67 The Colombo Labo_ur Exchange ro8 Increase in village housing 68 Domestic servants 23391 6 Paragraph Paracraplt- INDIAN IMMIGRATION. LEGISLATION. Restrictions IIO Contracts for hire and service I26 III · Difficulties entailed Employment of women and I27 young persons. PENSION SCHEMES Employment of females in 128 Limitations II2 mines., Sources of funds . .. II3 Difficulties cif organisation' II4 Industrial disputes · .... 129 Neeq for expert examination... IIS Indian immigration .... 130 Estate labour ... · ... ..·. 131. TRADE UNIONS. Minimum wages' ..; 132 Origin ... II6 Registration of domestic 133 Characteristics II7 servants. Leadership II8 Trade Union Ordinance ... 134 Non-representative type II9 Workmen's compensation ... 13S Improvements 120 Shops regulation 136 & 137 Maternity benefits I38 \ LABOUR DEPARTMENT. Children and young persons ... I39 \__, Staff I2I Distribution - ...... 122 Wages boards .. I40 Need for Medical Officer I23 Legislation under consideration 141 Need for Factory Inspector ... I24 Desirability of general appli- I42 Statistical branch I2S cation. Page'·· Appendix I. Revenue and Expe!'diture .. , 42- Appendix II. Agricu~tural Summary Appendix III. Average Prices of Principal Commodities 42 Appendix IV. Principal Occupations in Ceylo11 and ·Average Rates of 4.3 ' Wages. · , Appendix v. Cost of Living Allowances grant!"~ to Government Em- 4S ployees. Appendix VI. .Migration of Indian Estate Labourers travelling between· 4S Ceylon and India. · Appendix VII. Plantation Labour and Housing .... 46 Appendix VIII. Labour Employed by Government Departments and Local 47 . ' .· Bodies in May, I94I. Appendix IX. Trade Union Statistics 48 Appendix X. Statistics of Workmen's Compensation 50 Appendix XI. Statistics of Accidents so •facing page Diagram I. · Annual Average Market Prices; Ceylon Products .... so Diagram. 2. Migration of Indian Estate Labourers travelling between SI .. Ceylon and India. 7 REPORT ON CONDITIONS OF L}\BOUR IN CEYLON. Introductory. I. Ceylon lies a few degrees north of the Equator and has an area of just over zs,ooo square miles. The Island is mountainous, rising to -a heigh! of 8,292 feet, and, in consequence, there is a great variety of climate. This has proved very favourable to plantation. crops, particularly tea, which is now · the staple industry of !he Island. Rainfall varies widely and the south-west quarter of the Island is very fertile and well watered. The northern half is flatter and dryer, with an annual rainfall of about so inches over the greater part, bu! considerably less in a few localities. The contrast between the northern and southern ):ialves has led to the former being usually alluded to as ·the " dry zone," although its rainfall would be regarded in many countries as enviable. A serious obstacle to development exists in the form of malaria which is very prevalen! in the north and-forms a constant handicap to schemes for settlement which would otherwise be very promising. On the reduction of this scourge must depend the successful development of large areas of land much needed by the increasing population. 2. Owing to these conditions, most of the tea gardens are in the South Central Highlands, rubber occupying an intermediate position, with coconuts in the low country. The prosperity engendered by this valuable development has facilitated the construction of a fine transport system; in addition to over r,ooo miles of railway, there are nearly s.ooo niiles of metalled