(c) crown copyright
Catalogue Reference:CAB/129/81
Image Reference:0045
Printed
for the Cabinet.
June
1956
SECRET
Copy N o .
C P . (56) 145
22nd
June,
1956
CABINET
COLONIAL
I M M I G R A N T S
REPORT OF THE COMMITTEE OF
MINISTERS
Introductory
T h e P r i m e M i n i s t e r a p p o i n t e d t h e C o m m i t t e e w i t h t h e following c o m p o s i t i o n
a n d t e r m s of r e f e r e n c e :
Composition
:
Lord Chancellor
(Chairman).
Lord
President.
H o m e Secretary.
C o m m o n w e a l t h Secretary.
C o l o n i a l Secretary.
M i n i s t e r of L a b o u r .
Attorney-General.
Terms of
Reference:
" T o consider w h a t f o r m legislation s h o u l d t a k e , if it w e r e t o b e d e c i d e d
t h a t legislation t o c o n t r o l t h e e n t r y i n t o t h e U n i t e d K i n g d o m of British subjects
f r o m overseas s h o u l d b e i n t r o d u c e d ; to c o n s i d e r also t h e i n t e n d e d effect of
s u c h legislation u p o n a c t u a l i m m i g r a t i o n , h o w a n y s u c h c o n t r o l w o u l d b e
justified t o P a r l i a m e n t a n d t h e public, a n d t o t h e C o m m o n w e a l t h c o u n t r i e s
c o n c e r n e d ; a n d r e p o r t to t h e C a b i n e t . "
2. T h e C o m m i t t e e w e r e of t h e o p i n i o n t h a t t h e y c o u l d best h e l p t h e C a b i n e t
to r e a c h a decision o n this m a t t e r if t h e y were first t o b r e a k t h e p r o b l e m d o w n i n t o
a n u m b e r of q u e s t i o n s a n d issues, a n d a t t e m p t t o r e a c h c o n c l u s i o n s o n these
s e p a r a t e l y , in t h e h o p e t h a t f r o m t h e s e conclusions t h e C a b i n e t will find it possible
t o d e c i d e w h e t h e r t h e p r o b l e m is so serious as t o w a r r a n t early a c t i o n ; or,
alternatively, w h e t h e r it m i g h t b e sufficient to r e n e w the p r o b l e m again in p e r h a p s
a y e a r ' s t i m e . After first s u m m a r i s i n g t h e scale of t h e p r o b l e m w e h a v e t h e r e f o r e
c o n s i d e r e d w h a t t h e p r o b a b l e s h o r t - t e r m a n d l o n g - t e r m e c o n o m i c a n d social
c o n s e q u e n c e s w o u l d b e if n o a c t i o n is t a k e n t o deal w i t h it. W e h a v e also a t t e m p t e d
t o assess t h e state of p u b l i c o p i n i o n i n relation to this p r o b l e m . W e t h e n c o n s i d e r
w h a t f o r m a n y legislation s h o u l d t a k e a n d h o w t h e c o n t r o l of i m m i g r a t i o n c o u l d
b e justified t o P a r l i a m e n t , t h e p u b l i c a n d t h e C o m m o n w e a l t h c o u n t r i e s c o n c e r n e d .
The Problem
3. W e a r e c o n c e r n e d in this R e p o r t w i t h c o l o u r e d p e o p l e f r o m t h e A f r i c a n
a n d A s i a t i c territories of t h e C o m m o n w e a l t h a n d f r o m t h e W e s t I n d i e s .
The
n u m b e r of c o l o u r e d p e o p l e in this c o u n t r y before t h e w a r w a s a b o u t 7,000. By
1953 it h a d risen t o m o r e t h a n 40,000 a n d the r a t e of i n c r e a s e h a s since a c c e l e r a t e d
steeply. I n t h e t h r e e c o n s e c u t i v e y e a r s 1953, 1954 a n d 1955 t h e n u m b e r s of
c o l o u r e d i m m i g r a n t s a r r i v i n g h e r e w e r e a p p r o x i m a t e l y 3,000, 10,000 a n d 35,000
respectively. T h e t o t a l c o l o u r e d p o p u l a t i o n is n o w a b o u t 100,000; of w h i c h
a p p r o x i m a t e l y 50,000 are W e s t I n d i a n s , the m a j o r i t y f r o m J a m a i c a .
4. U p till recently c o l o u r e d i m m i g r a n t s h a v e h a d little difficulty in finding
w o r k h e r e . T h e y h a v e n o t m a d e u n d u e d e m a n d s o n N a t i o n a l A s s i s t a n c e ; they
h a v e c r e a t e d n o p a r t i c u l a r p r o b l e m i n r e g a r d t o t h e H e a l t h S e r v i c e ; they a r e
g e n e r a l l y l a w - a b i d i n g ; a n d , e x c e p t in a few p l a c e s , their p r e s e n c e h a s a r o u s e d
little, if a n y , p u b l i c e x p r e s s i o n of r a c e feeling. I n c e r t a i n areas, h o w e v e r , m a i n l y
in L o n d o n a n d B i r m i n g h a m , p r o b l e m s h a v e arisen, m a i n l y in c o n n e c t i o n w i t h
h o u s i n g , w h e r e t h e i m m i g r a n t s t e n d t o r e p r o d u c e t h e social p a t t e r n of t h e W e s t
I n d i e s . F r e s h arrivals, w h o lend t h e m s e l v e s to e x p l o i t a t i o n , p a r t i c u l a r l y b y o t h e r s
of their o w n r a c e , g r a v i t a t e t o existing c o m m u n i t i e s , resulting in g r o s s over­
c r o w d i n g in i n s a n i t a r y c o n d i t i o n s .
5. T h e r e is little p r o s p e c t of the r a t e of i m m i g r a t i o n from t h e W e s t Indies
s p o n t a n e o u s l y decreasing, for t h e r e is a t p r e s e n t n o a l t e r n a t i v e o u t l e t for their
s u r p l u s p o p u l a t i o n ; i n d e e d , if a n d as arrivals f r o m J a m a i c a are s u p p l e m e n t e d by
m o r e i m m i g r a n t s from T r i n i d a d , B a r b a d o s a n d t h e o t h e r islands, t h e r a t e of
i m m i g r a t i o n m a y well c o n t i n u e to rise. N e a r l y o n e - t h i r d of t h e 26,000 i m m i g r a n t s
f r o m t h e W e s t Indies w h o a r r i v e d last y e a r c a m e f r o m islands o t h e r t h a n J a m a i c a .
West Indian immigrants w h o have already arrived here form an advance guard
w h o h e l p t o b r i n g over their friends a n d r e l a t i v e s ; p r a c t i c a l facilities for t r a n s ­
p o r t i n g large n u m b e r s of e m i g r a n t s h a v e b e e n b u i l t u p ; a n d c o n d i t i o n s h e r e ,
h o w e v e r b a d for t h e i m m i g r a n t , a r e b e t t e r t h a n c o n d i t i o n s in t h e W e s t Indies.
I t is t h e c u m u l a t i v e effect of these factors w h i c h is c a u s i n g t h e tide of i m m i g r a t i o n
t o rise. N o t o n l y w o u l d it be ineffectual t o a d v i s e i n t e n d i n g i m m i g r a n t s n o t t o
c o m e h e r e b u t i m m i g r a t i o n is being s t i m u l a t e d b y a c t i o n w h i c h is being t a k e n b o t h
in the W e s t Indies a n d in this c o u n t r y . T h e r e is a d e m a n d h e r e for t r a n s p o r t a n d
domestic workers and nurses. T h e L o n d o n T r a n s p o r t Executive have apparently
s e n t a r e c r u i t i n g m i s s i o n t o B a r b a d o s ; it is u n d e r s t o o d t h a t British R a i l w a y s are
also m a k i n g a r r a n g e m e n t s t o i m p o r t c o l o u r e d w o r k e r s . I n t h e W e s t Indies the
B a r b a d o s G o v e r n m e n t , if n o o t h e r , is k n o w n to b e actively e n c o u r a g i n g e m i g r a t i o n .
A n d t h e p r o s p e c t c a n n o t b e e x c l u d e d t h a t i m m i g r a t i o n f r o m the W e s t I n d i e s m a y
e v e n t u a l l y b e a u g m e n t e d b y arrivals f r o m N i g e r i a , t h e G o l d C o a s t a n d o t h e r
c o l o u r e d territories.
B u t , so far as t h e W e s t Indies are c o n c e r n e d , it is a r e l e v a n t p o i n t t h a t , as the
e c o n o m y of t h e C a r i b b e a n F e d e r a t i o n will b e o n l y p r e c a r i o u s l y viable, t h e U n i t e d
K i n g d o m will b e faced w i t h s o m e r e s i d u a l financial b u r d e n if t h e s u r p l u s p o p u l a t i o n
h a s n o outlet at all.
Short-Term Consequences
6. T h e r e is n o d o u b t t h a t u n c o n t r o l l e d i m m i g r a t i o n of c o l o u r e d p e o p l e is
likely t o lead to housing problems of progressively serious p r o p o r t i o n s in the areas
i n w h i c h t h e i m m i g r a n t s c o n g r e g a t e . T h e p r o b l e m of finding a c c o m m o d a t i o n
for i m m i g r a n t s will be f u r t h e r a g g r a v a t e d as s l u m c l e a r a n c e p r o c e e d s . T h e r e
m a y well be difficult a n d e m b a r r a s s i n g s i t u a t i o n s if a n d w h e n local authorities
a r e faced w i t h t h e o b l i g a t i o n of giving p r i o r i t y for C o u n c i l h o u s e s t o c o l o u r e d
t e n a n t s evicted f r o m s l u m areas, in p r e f e r e n c e t o p e o p l e w h o h a v e b e e n o n the
w a i t i n g list a g o o d d e a l longer. T h e r e is a l r e a d y a n a c u t e h o u s i n g p r o b l e m in
L a m b e t h , Cardiff, B i r m i n g h a m a n d W o l v e r h a m p t o n , a n d t h e i n d i c a t i o n s are t h a t
t h e c o l o u r e d p o p u l a t i o n in s o m e of t h e s e a r e a s is b e g i n n i n g to disperse t o w a r d s
o t h e r m i d l a n d t o w n s w i t h o u t necessarily s p r e a d i n g themselves thinly e n o u g h to
b e m o r e easily a b s o r b e d . If i m m i g r a t i o n c o n t i n u e s a t t h e s a m e r a t e of geometrical
p r o g r e s s i o n as h i t h e r t o , t h e r e seems t h e r e f o r e t o b e a real d a n g e r t h a t t h e presence
i n c e r t a i n i n d u s t r i a l areas of l a r g e e l e m e n t s of c o l o u r e d p o p u l a t i o n m a y cause a
s u d d e n a c u t e p r o b l e m over h o u s i n g .
7. A s r e g a r d s employment,
c o l o u r e d i m m i g r a n t s h a v e recently b e e n m a k i n g
a useful c o n t r i b u t i o n to t h e l a b o u r force. I n d e e d , d u r i n g 1955 t h e arrival of drafts
of i m m i g r a n t s t o fill l o w - p a i d m a n u a l j o b s h e l p e d to e a s e r a t h e r t h a n t o e x a c e r b a t e
t h e l a b o u r s i t u a t i o n . E v e n n o w , as m e n t i o n e d i n p a r a g r a p h 5, s o m e public
a u t h o r i t i e s are t a k i n g steps to e n c o u r a g e W e s t I n d i a n s to e m i g r a t e to this c o u n t r y
for e m p l o y m e n t . I n view of a slight decline in t h e intensity of t h e d e m a n d for
l a b o u r in recent m o n t h s , h o w e v e r , it is n o l o n g e r so easy to p l a c e W e s t I n d i a n
i m m i g r a n t s in e m p l o y m e n t as it h a s b e e n , a n d t h e r e is s o m e r e a s o n t o t h i n k t h a t
t h e p r o p o r t i o n of u n e m p l o y m e n t a m o n g W e s t I n d i a n s a l r e a d y in this c o u n t r y m a y
b e increasing. A special c o u n t of u n e m p l o y m e n t a m o n g s t c o l o u r e d w o r k e r s is
n o w b e i n g t a k e n a n d the results of this will s h o w h o w t h e s i t u a t i o n is developing.
3
I n any case t h e p e n d u l u m c a n be e x p e c t e d to s w i n g violently, as s o o n as t h e r e is a n y
r e a l recession in t h e e c o n o m y ; a n d while t h e T r a d e U n i o n s at p r e s e n t e x p r e s s
themselves in f r a t e r n a l t e r m s t o w a r d s c o l o u r e d w o r k e r s , t h e r e is little d o u b t t h a t
British w o r k e r s w o u l d k e e n l y r e s e n t seeing W e s t I n d i a n s in desirable j o b s w h i c h
t h e y themselves c o u l d fill. I t is t r u e t h a t t h e r e is a g o o d d e a l of slack t o b e t a k e n
u p by r e d u c i n g excessive o v e r t i m e before a n y s u b s t a n t i a l degree of g e n e r a l
u n e m p l o y m e n t begins t o e m e r g e . N e v e r t h e l e s s , a t r a d e recession m i g h t entail a
s h a r p a n d swift i n c r e a s e in t h e n u m b e r s of u n e m p l o y e d , a n d t h e r e w o u l d b e d a n g e r
of d i s t u r b i n g i n c i d e n t s . I t follows t h a t if w e decide t o i n t r o d u c e legislation t o
c o n t r o l i m m i g r a t i o n f r o m t h e C o m m o n w e a l t h it w o u l d b e b e t t e r to i n t r o d u c e it
d u r i n g a p e r i o d of generally full e m p l o y m e n t , w h e n its full r i g o u r m i g h t n o t b e felt,
r a t h e r t h a n t o w a i t u n t i l t h e n e e d for fully effective c o n t r o l h a s b e c o m e i m p e r a t i v e .
8. T h e c o n c l u s i o n t o b e d r a w n f r o m this is t h a t while t h e p r e s e n c e of c o l o u r e d
w o r k e r s d o e s n o t a t p r e s e n t c r e a t e a n y really g r a v e p r o b l e m in r e g a r d t o e i t h e r
h o u s i n g o r e m p l o y m e n t , at a n y m o m e n t difficulties of h o u s i n g or e m p l o y m e n t o r
b o t h m i g h t c a u s e t h e p r o b l e m t o a s s u m e really e m b a r r a s s i n g p r o p o r t i o n s in
p a r t i c u l a r localities.
B u t it is d o u b t f u l w h e t h e r s u c h p r o b l e m s will r e l a t e
essentially to c o l o u r . T h e r e w o u l d b e t h e s a m e risk w h e r e a n y recently a r r i v e d
g r o u p s of foreigners, e.g., P o l e s , w e r e c o n g r e g a t e d t o g e t h e r . B u t the p r o b l e m s ,
a n d t h e a t t e n d a n t risks, a r e n o d o u b t h e i g h t e n e d b y differences of c o l o u r .
L o n g - T e r m and Social Consequences
9 . If i m m i g r a t i o n c o n t i n u e s at its p r e s e n t r a t e it will t a k e at least ten y e a r s
for the c o l o u r e d p o p u l a t i o n of this c o u n t r y (after allowing for n a t u r a l increase) t o
rise t o 1 p e r cent, of t h e w h i t e p o p u l a t i o n . T h e r e seems t o b e little e v i d e n c e a t
p r e s e n t of i n t e r - b r e e d i n g . T h e o r d i n a r y p e o p l e of t h i s ' c o u n t r y seem t o b e b y n o
m e a n s i n t o l e r a n t of c o l o u r e d p e o p l e in their midst. T h e r e a p p e a r s t o be little
p r o s p e c t t h e r e f o r e of r a c e riots o r c o l o u r b a r i n c i d e n t s o n g r o u n d s of r a c e a l o n e .
B u t there is always t h e special risk t h a t s o m e p a r t i c u l a r l y d a s t a r d l y c r i m e i n v o l v i n g
a c o l o u r e d m a n m i g h t t o u c h off t r o u b l e of this k i n d .
A s r e g a r d s political
c o n s e q u e n c e s , it is n o t i m p o s s i b l e t h a t , in time, t h e v o t e of t h e c o l o u r e d p o p u l a t i o n
m i g h t achieve a significance o u t of p r o p o r t i o n t o its size if it w e r e c o n c e n t r a t e d in,
say, half a d o z e n i n d u s t r i a l t o w n s i n v o l v i n g t w e n t y o r twenty-five c o n s t i t u e n c i e s .
I n d e e d , t h e l o n g - t e r m c o n s e q u e n c e s of t h e c o n t i n u e d i m m i g r a t i o n of c o l o u r e d p e o p l e
m u s t clearly b e a r a p r o p o r t i o n a t e r e l a t i o n s h i p t o t h e n u m b e r of i m m i g r a n t s . If
n o c o n t r o l is exercised a n d t h e n u m b e r s of i m m i g r a n t s c o n t i n u e t o increase, t h e
p r o b l e m s , relatively small a t p r e s e n t , w h i c h c o l o u r e d i m m i g r a n t s p r e s e n t in r e g a r d
t o e m p l o y m e n t a n d h o u s i n g will b e c o m e c u m u l a t i v e . A n d , as n u m b e r s i n c r e a s e ,
difficulties in r e g a r d t o h o u s i n g a n d e m p l o y m e n t m a y b e c o m p l i c a t e d b y m o r e
general p r o b l e m s of social assimilation. T h e i n d i c a t i o n s t h a t t h e r e is little i n t e r ­
b r e e d i n g a t p r e s e n t c a n n o t b e p r o j e c t e d to justify a forecast for the f u t u r e .
On
p r e s e n t e v i d e n c e a t r e n d t o w a r d s m i s c e g e n a t i o n c a n n e i t h e r b e forecast n o r
e x c l u d e d . If s u c h a t r e n d w e r e t o o c c u r it w o u l d b e a n i m p o r t a n t factor. I n t h e
light of these c o n s i d e r a t i o n s t h e l o n g - t e r m c o n s e q u e n c e s of u n c o n t r o l l e d
i m m i g r a t i o n are as yet i n c a l c u l a b l e .
Public Opinion
10. W e c o n s i d e r e d w h e t h e r t h e r e w a s a n y significant m o v e m e n t of p u b l i c
o p i n i o n generally, o r in t h e areas p r i m a r i l y affected, w h i c h s h o u l d w e i g h strongly
w i t h t h e G o v e r n m e n t in r e a c h i n g their decision o n this p r o b l e m . G i v e n o u r basic
t o l e r a n c e t o w a r d s c o l o u r e d p e o p l e , t h e r e seems t o b e little d o u b t t h a t p u b l i c o p i n i o n
generally is m u c h less exercised a b o u t t h e q u e s t i o n t h a n it w a s a y e a r o r t w o a g o .
W h a t w a s at first seen a p p r e h e n s i v e l y as a n e w p h e n o m e n o n , c r e a t i n g local p r o b l e m s
of a n o v e l k i n d , is n o w r e g a r d e d w i t h d i m i n i s h e d interest. T h e r e is, of c o u r s e ,
steady p r e s s u r e in s u c h places as B i r m i n g h a m for t h e G o v e r n m e n t to t a k e timely
action to deal w i t h a p r o b l e m t h e c o n s e q u e n c e s of w h i c h are, in these p a r t i c u l a r
localities, all t o o a p p a r e n t ; a n d a r e s o l u t i o n h a s b e e n p a s s e d in W e s t B r o m w i c h
that the coloured population there has reached saturation point. On the other
h a n d , it is unlikely t h a t o p i n i o n in, say, Bristol or Y o r k s h i r e w o u l d b e g r e a t l y
c o n c e r n e d a b o u t B i r m i n g h a m ' s difficulties. I n d e e d , unless a p a r t i c u l a r i n c i d e n t
excited p u b l i c feeling generally, it is p r o b a b l e t h a t m o s t p e o p l e — c e r t a i n l y t h e m o r e
v o c a l e l e m e n t s — w o u l d be m o r e c o n c e r n e d a b o u t t h e illiberal n a t u r e of a n y steps
w h i c h t h e G o v e r n m e n t m i g h t p r o p o s e to deal w i t h t h e p r o b l e m t h a n w i t h the
p r o b l e m itself. N e v e r t h e l e s s , this is the k i n d of q u e s t i o n o n w h i c h p u b l i c o p i n i o n
is n o r m a l l y fairly q u i e t u n t i l , in u n f a v o u r a b l e c o n d i t i o n s , it s u d d e n l y b e c o m e s
violent.
W h a t F o r m S h o u l d a n y Legislation T a k e ?
11. I n c o n s i d e r i n g this w e h a d before us t h e draft Bill circulated b y t h e H o m e
Secretary u n d e r cover of C P . (55) 166. W e first c o n s i d e r e d w h e t h e r t h e t w o
criteria p r o p o s e d in t h e Bill, of a job a n d a h o u s e t o go t o , w e r e p r a c t i c a b l e criteria
a n d n o t easily c a p a b l e of e v a s i o n .
12. W e c a m e t o t h e c o n c l u s i o n t h a t t h e c r i t e r i o n of a job, in t h e p r e s e n t
c o n d i t i o n s of full e m p l o y m e n t , w o u l d n o t b e effective. If t h e n e e d a r o s e agencies
w o u l d n o d o u b t be set u p t o bring i n t e n d i n g i m m i g r a n t s a n d e m p l o y e r s t o g e t h e r
a n d so o v e r c o m e the o b s t a c l e . T h e s e agencies m i g h t well c o n t i n u e in o p e r a t i o n
e v e n if e m p l o y m e n t b e c a m e less full t h a n it is n o w . It w o u l d b e difficult t o a t t e m p t
t o close a l o o p h o l e of this k i n d by a p p l y i n g to s u c h agencies a c o n t r o l w h i c h w a s
n o t e x t e n d e d to e m p l o y m e n t agencies generally. T h i s w o u l d simply s u p p l y t h e
o p p o n e n t s of c o n t r o l w i t h a d d i t i o n a l a r g u m e n t s a g a i n s t a n y f o r m of r e g u l a t i o n .
13. T h e criterion of a house, o n the o t h e r h a n d , seems likely to b e m u c h m o r e
effective. L o c a l h o u s i n g a u t h o r i t i e s w o u l d h a v e a direct interest in a d m i n i s t e r i n g
rigorously a system by which an intending immigrant would have to produce a
certificate t h a t a c c o m m o d a t i o n w a s available. I t w o u l d n o t be t h e i n t e n t i o n ,
h o w e v e r , t o define t h e test w i t h a n y precision in the Bill, n o r to a d m i n i s t e r t h e
c o n t r o l centrally, b u t r a t h e r t h r o u g h the local a u t h o r i t i e s . T h e local a u t h o r i t i e s
t h e m s e l v e s w o u l d d e c i d e w h a t c o n s t i t u t e d " s u i t a b l e " a c c o m m o d a t i o n , a n d they
c o u l d adjust the severity of t h e test a c c o r d i n g t o t h e r e s u l t they w a n t e d to achieve.
I t m u s t b e recognised t h e r e f o r e t h a t the effectiveness of t h e test w o u l d d e p e n d o n
t h e a t t i t u d e t a k e n by t h e local a u t h o r i t i e s , w h o s e r e p r e s e n t a t i v e associations h a v e
not been consulted on the matter.
14. Subject to t h e s e c o m m e n t s , we w e r e in g e n e r a l a g r e e m e n t t h a t , if t h e
G o v e r n m e n t w e r e t o d e c i d e t o legislate o n this subject, t h e legislation m i g h t well
b e o n t h e lines of the p r o v i s i o n s c o n t a i n e d in t h e draft Bill a n n e x e d to C P . (55) 166,
in spite of t h e fact t h a t the effectiveness of this legislation w o u l d b e b a s e d o n the
h o u s i n g r a t h e r t h a n t h e e m p l o y m e n t test. O n a n i m p o r t a n t p o i n t of a d m i n i s t r a t i o n ,
t h e C o m m i t t e e c o n s i d e r e d t h a t if legislation to c o n t r o l C o m m o n w e a l t h i m m i g r a n t s
w e r e i n t r o d u c e d it w o u l d b e necessary as a c o r o l l a r y t o i n c l u d e p o w e r s to d e p o r t
u n d e s i r a b l e s . T h e C o m m i t t e e felt, h o w e v e r , t h a t it w o u l d n o t be p r a c t i c a b l e t o
set u p a t r i b u n a l to a d j u d i c a t e o n d e p o r t a t i o n cases, a n d t h a t t h e s a m e discretion
w o u l d h a v e t o b e r e p o s e d i n the H o m e Secretary as h e n o w exercises i n respect
of aliens.
15. W e c o n s i d e r e d w h e t h e r c o n t r o l o n t h e lines c o n t e m p l a t e d in t h e draft
Bill w o u l d be really effective n o t merely in limiting the flow of i m m i g r a n t s , possibly
at its p r e s e n t level, b u t , if t h e n e e d s h o u l d arise, in drastically r e d u c i n g it. If, as
w a s suggested t o us, t h e r e q u i r e m e n t of a suitable h o u s e t o go to w o u l d in practice
p r o v i d e a real c h e c k o n i m m i g r a t i o n , this in itself m i g h t be sufficient to e n a b l e us
t o c u t d o w n t h e r a t e of i m m i g r a t i o n to a n y e x t e n t t h a t m a y b e t h o u g h t advisable.
T h e local authorities, a l t h o u g h it is t h o u g h t t h a t t h e q u e s t i o n of c o l o u r w o u l d n o t
w e i g h w i t h t h e m in m a k i n g their d e t e r m i n a t i o n , c o u l d be e x p e c t e d t o b e s p a r i n g
in g r a n t i n g certificates; i n d e e d , it is possible t h a t they m i g h t exercise their p o w e r s
t o s u c h a n e x t e n t as t o i m p o s e a n effective p r o h i b i t i o n , r a t h e r t h a n c o n t r o l , o n
i m m i g r a t i o n . N e v e r t h e l e s s , t h e effective s a n c t i o n w o u l d be in their h a n d s , a n d its
v a l u e in the b r o a d e r n a t i o n a l interest w o u l d c o n s e q u e n t l y d e p e n d o n t h e
G o v e r n m e n t a n d the local a u t h o r i t i e s t a k i n g t h e s a m e view of the p r o b l e m at a n y
given t i m e .
16. W e h a v e t h e r e f o r e considered w h e t h e r it w o u l d b e p r u d e n t to h a v e in
r e s e r v e p o w e r t o i m p o s e a q u o t a o n the t o t a l n u m b e r s of C o m m o n w e a l t h subjects
p e r m i t t e d to e n t e r this c o u n t r y . S u c h a p o w e r , t o be held in reserve, w o u l d h a v e
t h e a d v a n t a g e of m a k i n g it possible for the c e n t r a l G o v e r n m e n t to a s s u m e c o m p l e t e
c o n t r o l of the s i t u a t i o n if n e e d arose. O n the o t h e r h a n d , t h e r e are very serious
o b j e c t i o n s to subjecting C o m m o n w e a l t h c o u n t r i e s t o this f o r m of control. A q u o t a
w o u l d b e a n i n n o v a t i o n w h i c h they w o u l d n o t w e l c o m e ; it w o u l d be d i s c r i m i n a t o r y
as b e t w e e n o n e t e r r i t o r y a n d a n o t h e r ; it w o u l d h a v e to b e a p p r o v e d b y P a r l i a m e n t
b y affirmative r e s o l u t i o n s w h i c h w o u l d b e subject t o critical d e b a t e ; a n d t h e
a p p o r t i o n m e n t of t h e q u o t a as b e t w e e n different C o m m o n w e a l t h c o u n t r i e s w o u l d
p r e s e n t e m b a r r a s s i n g p r o b l e m s . M o r e o v e r , q u o t a s for C o m m o n w e a l t h subjects
c o u l d n o t fail t o involve c o n s i d e r a t i o n of t h e i m p o s i t i o n of q u o t a s o n aliens.
B u t in spite of these objections, w e t h i n k t h a t legislation m i g h t n e e d t o c o n t a i n
a r e s e r v e p o w e r , to b e exercised b y s t a t u t o r y i n s t r u m e n t subject t o affirmative
r e s o l u t i o n , t o i m p o s e a q u o t a o n the t o t a l n u m b e r of i m m i g r a n t s , say in o n e y e a r .
I n view, h o w e v e r , of t h e difficulties t o w h i c h q u o t a s for C o m m o n w e a l t h subjects
w o u l d i n e v i t a b l y give rise w e suggest t h a t t h e I n t e r - D e p a r t m e n t a l W o r k i n g P a r t y
w h i c h w a s set u p last y e a r s h o u l d e x a m i n e b o t h t h e policy a n d t h e a d m i n i s t r a t i v e
aspects of t h e m a t t e r b e f o r e a final decision is t a k e n o n this p a r t i c u l a r p o i n t .
17. W e a g a i n c o n s i d e r e d w h e t h e r legislation c o u l d b e confined t o the p r o b l e m
of c o n t r o l l i n g i m m i g r a n t s from the W e s t Indies p o s s i b l y w i t h p o w e r to e x t e n d
it t o o t h e r C o l o n i e s w h i c h m i g h t l a t e r s u p p l y s u b s t a n t i a l n u m b e r s of i m m i g r a n t s .
W e d e c i d e d , h o w e v e r , t h a t it w o u l d b e q u i t e i m p r a c t i c a b l e t o single o u t o n e C o l o n y
or g r o u p of C o l o n i e s for d i s c r i m i n a t o r y legislation, a n d w e h a v e n o d o u b t t h a t
a n y legislation w o u l d h a v e to a p p l y , o n t h e face of it, t o t h e C o m m o n w e a l t h as
a w h o l e . W e r e c o g n i s e t h a t t h e p o s i t i o n of citizens of t h e Irish R e p u b l i c w o u l d
b e a n o m a l o u s ; b u t w e t h i n k t h a t this c o u l d b e d e f e n d e d , b o t h to U n i t e d K i n g d o m
a n d C o m m o n w e a l t h o p i n i o n , o n g r o u n d s of p r o x i m i t y a n d t h e p r a c t i c a l p r o b l e m s
w h i c h it g e n e r a t e s , t h e illogical b u t w o r k a b l e legal p o s i t i o n u n d e r t h e British
N a t i o n a l i t y A c t , 1948, a n d the l a r g e Irish p o p u l a t i o n s in t h e " o l d " D o m i n i o n s .
18. A s a n a l t e r n a t i v e to legislation o n these lines it w a s suggested t h a t a n
a t t e m p t m i g h t b e m a d e t o a p p l y to o t h e r c o u n t r i e s of t h e C o m m o n w e a l t h , o n a
r e c i p r o c a l basis, t h e s a m e restrictions o n i m m i g r a t i o n as these c o u n t r i e s a p p l y t o
citizens of t h e U n i t e d K i n g d o m . B u t this w o u l d n o t p r o v i d e a satisfactory basis
for legislation. P a k i s t a n a n d I n d i a allow p e o p l e f r o m t h e U n i t e d K i n g d o m t o
e n t e r their t e r r i t o r i e s freely, a n d J a m a i c a w o u l d n o d o u b t b e p r e p a r e d to d o t h e
s a m e . I n d e e d , a system of reciprocity w o u l d t r a n s f e r t h e effective c o n t r o l of o u r
i m m i g r a t i o n l a w i n t o t h e h a n d s of t h o s e C o m m o n w e a l t h territories w h o w o u l d b e
m o s t directly c o n c e r n e d t o influence it. M o r e o v e r , t h e r e is a g r e a t n u m b e r of
different s y s t e m s of c o n t r o l in o p e r a t i o n in C o m m o n w e a l t h territories, a n d it
w o u l d b e a d m i n i s t r a t i v e l y i m p r a c t i c a b l e for t h e U n i t e d K i n g d o m , u n d e r a
r e c i p r o c a l s y s t e m , to a t t e m p t t o a p p l y t h e m all.
H o w c o u l d such control be justified to Parliament a n d the Public, and t o t h e
C o m m o n w e a l t h Countries concerned?
19. T h e r e is n o d o u b t t h a t even t h o u g h a Bill o n t h e lines of t h a t a n n e x e d
t o C P . (55) 166 w o u l d , in f o r m , b e n o n ^ d i s c r i m i n a t o r y , it w o u l d nevertheless b e
clear against w h o m t h e Bill w a s really directed. W e c a m e t o t h e c o n c l u s i o n t h a t
t h e i n t r o d u c t i o n of c o n t r o l m i g h t be justified o n t h e following g r o u n d s : —
(a) It c o u l d b e justified in r e l a t i o n to h o u s i n g c o n d i t i o n s .
(b) I t c o u l d b e s t a t e d t h a t t h e r e m u s t o b v i o u s l y b e s o m e limit to t h e n u m b e r s
of i m m i g r a n t s w h i c h w e c o u l d b e e x p e c t e d t o a d m i t to this s m a l l a n d
a l r e a d y densely p o p u l a t e d island.
(c) E v e n t h o u g h it w o u l d n o d o u b t b e necessary t o recognise t h e real object
of t h e legislation, it s h o u l d b e stressed t h a t t h e G o v e r n m e n t w e r e
t a k i n g g e n e r a l p o w e r s a p p l i c a b l e to citizens of all m e m b e r s of t h e
C o m m o n w e a l t h , a n a l o g o u s to t h e p o w e r s a l r e a d y p o s s e s s e d by m o s t
of these c o u n t r i e s .
(d) T h e b r o a d e r g r o u n d s o n w h i c h legislation of this k i n d c o u l d be justified
w o u l d b e t h a t the U n i t e d K i n g d o m , n o r m a l l y a n e m i g r a n t c o u n t r y ,
h a s for t h e second t i m e this c e n t u r y b e e n faced w i t h a s u d d e n a n d
s p o n t a n e o u s influx of i m m i g r a n t s o n a s u b s t a n t i a l scale. T h e p r o b l e m
c o u l d b e said t o be very b r o a d l y similar to t h a t p r e s e n t e d in the early
y e a r s of the p r e s e n t c e n t u r y by t h e influx of aliens f r o m E a s t e r n E u r o p e
w h i c h led to the p a s s i n g of the first A l i e n s A c t , of 1905. A g a i n s t this
historical b a c k g r o u n d it s h o u l d be possible t o s h o w t h a t any f u r t h e r
restrictive legislation w h i c h m i g h t n o w h a v e to b e a p p l i e d to British
subjects h a d t h e s a m e b r o a d objects as, a n d w a s justifiable o n similar
g r o u n d s to, t h e first of the Aliens A c t s p a s s e d half a c e n t u r y a g o .
T h e Urgency of the Problem
20. O u r t e r m s of reference d o n o t expressly invite us t o say w h e t h e r , in t h e
light of o u r e x a m i n a t i o n of this p r o b l e m , w e t h i n k t h a t t h e t i m e h a s c o m e t o
i n t r o d u c e legislation to c o n t r o l c o l o u r e d i m m i g r a t i o n . W e feel, h o w e v e r , t h a t o u r
r e p o r t will be i n c o m p l e t e a n d less helpful to t h e C a b i n e t if w e d o n o t set o u t t h e
a r g u m e n t s a n d o u r c o n c l u s i o n s o n this m a j o r q u e s t i o n .
T h e Case for Early Legislation
21. The principle that the U n i t e d K i n g d o m should maintain an open door
f o r British subjects g r e w u p tacitly at a t i m e w h e n the c o l o u r e d races of t h e
C o m m o n w e a l t h w e r e at a m o r e p r i m i t i v e stage of d e v e l o p m e n t t h a n n o w . T h e r e
w a s n o d a n g e r t h e n of a c o l o u r e d invasion of this c o u n t r y . I n t h e m e a n t i m e
c i r c u m s t a n c e s h a v e c h a n g e d . C o l o u r e d p e o p l e are b e t t e r e d u c a t e d , they c a n find
t h e p a s s a g e m o n e y , a n d t r a n s p o r t facilities are b e t t e r developed. T h e r e is n o w n o t
m e r e l y t h e p r o s p e c t t h a t i m m i g r a t i o n from t h e W e s t Indies m i g h t accelerate, b u t
t h a t it m i g h t b e s u p p l e m e n t e d by i m m i g r a t i o n f r o m Nigeria, the G o l d C o a s t a n d
o t h e r c o l o u r e d a r e a s . T h e e m i g r a t i o n of c o l o u r e d w o r k e r s in search of t h e benefits
w h i c h t h e U n i t e d K i n g d o m c a n offer is likely t o b e facilitated r a t h e r t h a n r e t a r d e d
b o t h b y e c o n o m i c d e v e l o p m e n t a n d b y c o n s t i t u t i o n a l a d v a n c e in t h e c o l o u r e d areas
of the C o m m o n w e a l t h . W e clearly c a n n o t u n d e r t a k e t o a b s o r b in s u c h a densely­
p o p u l a t e d island i n h a b i t e d b y a different racial s t r a i n all t h e c o l o u r e d i m m i g r a n t s
w h o m a y wish t o c o m e h e r e . It t h e r e f o r e seems inevitable t h a t a t i m e will c o m e
w h e n this i m m i g r a t i o n will give rise to p r o b l e m s w h i c h o u t w e i g h t h e difficulties
of, a n d objections t o , e n a c t i n g legislation to c o n t r o l it. T h e r e is a d a n g e r t h a t w e
m a y b e faced w i t h the n e e d for u r g e n t a c t i o n w h e n it h a s already b e c o m e t o o
late. T h e ideal t i m e for legislation c a n n o t b e defined by reference to a n y precise
c r i t e r i a ; a n d t h e p r u d e n t c o u r s e w o u l d t h e r e f o r e b e to legislate w i t h o u t delay.
S u c h legislation w o u l d c a u s e n o s u r p r i s e in t h e w h i t e p a r t s of the C o m m o n w e a l t h ,
t h o u g h if it c o v e r e d i m m i g r a n t s f r o m t h e old D o m i n i o n s , t h e legislation w o u l d
n e e d v e r y full a n d careful h a n d l i n g t o e x p l a i n it t o p u b l i c o p i n i o n in those
countries.
22. T h i s a r g u m e n t c a n t o s o m e e x t e n t b e s u p p o r t e d by reference to the
interests of t h e W e s t I n d i e s themselves. T h e i r p o p u l a t i o n is increasing at t h e r a t e
of 2 p e r cent, a y e a r , a n d t h e r e is a l r e a d y c o n s i d e r a b l e u n e m p l o y m e n t . E v e n t u a l l y
this g r o w t h in p o p u l a t i o n will h a v e to. be b r o u g h t u n d e r c o n t r o l or s o m e p e r m a n e n t
outlet will h a v e t o b e f o u n d for t h e excess n u m b e r s . So long as this c o u n t r y
c o n t i n u e s to act as a safety v a l v e t h e W e s t I n d i a n G o v e r n m e n t s will h a v e n o
incentive to l o o k for a l t e r n a t i v e outlets for their s u r p l u s p o p u l a t i o n .
The Case Against Early Legislation
2 3 . F r o m t h e e c o n o m i c p o i n t of view t h e n a t i o n h a s benefited u p to the
p r e s e n t from t h e arrival of c o l o u r e d w o r k e r s . M o r e o v e r , t h e p r o b l e m is t o some
e x t e n t self-regulating: t h e i m m i g r a n t s will n o t c o m e h e r e if t h e r e is n o work.
C o n t r o l which m i g h t a m o u n t t o v i r t u a l p r o h i b i t i o n of i m m i g r a t i o n m i g h t impose
severe difficulties o n t h e a u t h o r i t i e s in t h e W e s t I n d i e s at a t i m e When t h e C a r i b b e a n
F e d e r a t i o n w o u l d be struggling to get o n its feet. I n t h e field of t h o u g h t , a decision
t o i m p o s e c o n t r o l w o u l d c o m e as a s h o c k t o liberal o p i n i o n . H o w e v e r disguised,
it w o u l d be r e p r e s e n t e d as d i s c r i m i n a t i o n o n g r o u n d s of r a c e a n d c o l o u r . A l t h o u g h
the a b s e n c e of a n y g e n e r a l p u b l i c d e m a n d for a c t i o n is n o t in itself a sound
a r g u m e n t for refraining f r o m legislation if t h a t w o u l d b e the r i g h t c o u r s e , it is
nevertheless t r u e t h a t i n a c o n t r o v e r s i a l m a t t e r of this k i n d t h e G o v e r n m e n t would
wish t o b e able t o c o u n t o n a satisfactory v o l u m e of p u b l i c s u p p o r t for any step
w h i c h they d e c i d e to t a k e . I t is d o u b t f u l w h e t h e r this s u p p o r t w o u l d b e forth­
c o m i n g at present. N o r c a n it b e d e v e l o p e d , e.g., f r o m t h e T r a d e U n i o n m o v e m e n t ,
unless serious u n e m p l o y m e n t d e v e l o p s .
Recommendations
24. W e all agree t h a t c o l o u r e d i m m i g r a t i o n h a s b e c o m e an o m i n o u s p r o b l e m
w h i c h c a n n o t n o w b e i g n o r e d . T h e majority of t h e C o m m i t t e e , while taking the
view t h a t s o m e f o r m of c o n t r o l over c o l o u r e d i m m i g r a t i o n will eventually be
i n e s c a p a b l e , c o n s i d e r t h a t t h e b a l a n c e of a d v a n t a g e lies against t a k i n g steps to
i m p o s e t h a t c o n t r o l at t h e p r e s e n t time. T h e y t h i n k t h a t t h e s i t u a t i o n s h o u l d be
k e p t u n d e r r e g u l a r r e v i e w a n d s h o u l d b e r e m i t t e d for f u r t h e r e x a m i n a t i o n i n
p e r h a p s a y e a r ' s time. I n d e e d , in view of c u r r e n t t r e n d s in t h e e m p l o y m e n t
s i t u a t i o n it m a y well p r o v e necessary t o review t h e possibility of c o n t r o l l i n g
c o l o u r e d i m m i g r a t i o n a t a n earlier d a t e t h a n a y e a r f r o m n o w .
T h e L o r d P r e s i d e n t dissents f r o m t h e view t h a t t h e b a l a n c e of a d v a n t a g e is
against t a k i n g a c t i o n n o w . H e c o n s i d e r s t h a t , as t h e a r g u m e n t s a d v a n c e d in t h e
R e p o r t itself s e e m c o n c l u s i v e in f a v o u r of a c t i o n a t s o m e p o i n t , t h e l o n g e r w e delay
t h e w o r s e t h e p o s i t i o n is b o u n d t o b e c o m e . N o r d o e s h e a c c e p t t h e a s s u m p t i o n
(in p a r a g r a p h 23) t h a t the G o v e r n m e n t w o u l d n o t h a v e a s t r o n g b o d y of p u b l i c
o p i n i o n b e h i n d t h e m if t h e y a c t e d n o w . H e w o u l d t h e r e f o r e f a v o u r a c t i o n b e i n g
p u t in h a n d f o r t h w i t h .
S u m m a r y of Conclusions
25.
O u r c o n c l u s i o n s m a y b e s u m m a r i s e d as f o l l o w s : —
(i) I n t h e s h o r t - t e r m t h e p r e s e n t u n c o n t r o l l e d i m m i g r a t i o n will h a v e
progressively s e r i o u s i m p l i c a t i o n s o n housing in t h e areas p r i n c i p a l l y
affected, a n d t h e p r o b l e m m a y r e a c h e m b a r r a s s i n g p r o p o r t i o n s in
p a r t i c u l a r localities ( p a r a g r a p h s 6 a n d 8).
(ii) W h i l e c o l o u r e d w o r k e r s h a v e recently m a d e a useful c o n t r i b u t i o n to t h e
l a b o u r force t h e e m p l o y m e n t s i t u a t i o n is clearly h a r d e n i n g s o m e w h a t .
A n a c t u a l t r a d e recession m i g h t well involve u n f o r t u n a t e incidents
w h e r e c o l o u r e d m e n w e r e either t h r o w n o u t of w o r k or d e p r i v e d w h i t e
m e n of j o b s ( p a r a g r a p h s 7 a n d 8).
(iii) I n t h e long t e r m , p r o b l e m s r e l a t i n g t o h o u s i n g a n d e m p l o y m e n t will
b e c o m e c u m u l a t i v e in direct p r o p o r t i o n t o t h e n u m b e r s of i m m i g r a n t s ,
a n d m a y b e c o m p l i c a t e d b y t h e e m e r g e n c e of b r o a d e r p r o b l e m s of
social assimilation. T h e l o n g e r - t e r m c o n s e q u e n c e s a r e t h e r e f o r e at
p r e s e n t i n c a l c u l a b l e ( p a r a g r a p h 9).
(iv) W h i l e p u b l i c i n t e r e s t in this subject is n o t at p r e s e n t very active, w e t h i n k
t h e r e is always a r e a l risk t h a t , as t h e n u m b e r s of i m m i g r a n t s increase,
a n d p a r t i c u l a r l y if t h e r e w e r e a n u n f o r t u n a t e i n c i d e n t , o p i n i o n m a y
b e c o m e violent ( p a r a g r a p h 10).
(v) W e r e c o m m e n d t h a t , if t h e C a b i n e t d e c i d e t o i n t r o d u c e legislation o n
this subject, t h e legislation s h o u l d b e o n t h e lines of t h e draft Bill
a n n e x e d t o C P . (55) 166. T h e effectiveness of this w o u l d d e p e n d n o t
o n t h e c r i t e r i o n of a j o b to g o t o (which w o u l d b e c a p a b l e
of evasion) b u t o n t h e r e q u i r e m e n t of h o u s i n g a c c o m m o d a t i o n
( p a r a g r a p h s 12 t o 14).
(vi) A n y legislation s h o u l d c o n t a i n p o w e r t o d e p o r t i m m i g r a n t s to b e exercised
o n t h e s a m e basis as t h e c o m p a r a b l e p o w e r s to d e p o r t aliens
( p a r a g r a p h 14).
(vii) I t m i g h t b e n e c e s s a r y t o t a k e a reserve p o w e r , w h i c h w o u l d be exercised
b y s t a t u t o r y i n s t r u m e n t subject to affirmative r e s o l u t i o n s , t o i m p o s e
a q u o t a o n t h e t o t a l n u m b e r of i m m i g r a n t s , say i n o n e year. B u t this
w o u l d raise f a r - r e a c h i n g issues, b o t h in C o m m o n w e a l t h r e l a t i o n s a n d
in i m m i g r a t i o n policy, a n d will n e e d f u r t h e r e x a m i n a t i o n before a n y
decision t o d o s o c a n b e t a k e n ( p a r a g r a p h 16).
(viii) S u c h legislation s h o u l d a p p l y in f o r m t o t h e w h o l e British C o m m o n w e a l t h
a n d E m p i r e , a n d n o t t o t h e W e s t I n d i e s alone. I t s h o u l d n o t apply
t o citizens of t h e I r i s h R e p u b l i c ( p a r a g r a p h 17).
(ix) C o n t r o l of i m m i g r a t i o n f r o m t h e C o m m o n w e a l t h c o u l d b e justified in
r e l a t i o n t o h o u s i n g c o n d i t i o n s , t h e a l r e a d y densely p o p u l a t e d c h a r a c t e r
of this c o u n t r y , t h e c o m p r e h e n s i v e n a t u r e of t h e legislation, a n d b y
reference t o t h e historical p e r s p e c t i v e in w h i c h a c t i o n of this kind
s h o u l d b e j u d g e d ( p a r a g r a p h 19).
(x) T h e m a j o r i t y of t h e C o m m i t t e e t h i n k t h a t c o n t r o l over c o l o u r e d
i m m i g r a t i o n will e v e n t u a l l y be i n e s c a p a b l e , b u t t h a t b a l a n c e of
a d v a n t a g e lies a g a i n s t i m p o s i n g it n o w .
T h e s i t u a t i o n s h o u l d be
r e - e x a m i n e d in a b o u t a y e a r ' s t i m e unless, b e c a u s e of f u r t h e r
d e t e r i o r a t i o n in t h e e m p l o y m e n t s i t u a t i o n for c o l o u r e d w o r k e r s , it
b e c o m e s necessary t o review it earlier.
T h e L o r d P r e s i d e n t c o n s i d e r s t h a t t h e b a l a n c e of a d v a n t a g e w o u l d
lie i n t a k i n g a c t i o n f o r t h w i t h a n d t h a t t h e a r g u m e n t s s u p p o r t this view
( p a r a g r a p h 24).
K.
(on behalf of t h e C o m m i t t e e ) :
House of Lords,
S.W.1,
20th June,
1956.