. 126 j
HIS D O C U M E N T I S T H E P R O P E R T Y
C. (65)
OF HER BRITANNIC MAJESTY'S
109
23rd July,
GOVERNMENT)
COPY NO.
59
1965
CABINET
COMMONWEALTH
IMMIGRATION
M e m o r a n d u m b y t h e L o r d P r e s i d e n t of t h e
Council
In a c c o r d a n c e with the C a b i n e t ' s d e c i s i o n s on 8th July
( C . C . ( 6 5 ) 3 6 t h C o n c l u s i o n s , M i n u t e 3) t h e C o m m o n w e a l t h I m m i g r a t i o n
C o m m i t t e e h a v e p r e p a r e d d r a f t s o f a W h i t e P a p e r ( A n n e x A ) a n d of a
s t a t e m e n t of G o v e r n m e n t p o l i c y ( A n n e x B ) o n C o m m o n w e a l t h
immigration.
2*
Timetable.
If t h e d r a f t c a n b e s e n t t o t h e p r i n t e r s o n t h e
e v e n i n g of 2 7 t h J u l y i t s h o u l d b e p o s s i b l e f o r t h e W h i t e P a p e r t o b e
p u b l i s h e d on 2nd A u g u s t .
It h a d p r e v i o u s l y b e e n e n v i s a g e d t h a t t h e
s t a t e m e n t of G o v e r n m e n t p o l i c y w o u l d b e m a d e i n a d v a n c e of t h e
p u b l i c a t i o n of t h e W h i t e P a p e r .
'We h a v e h o w e v e r u n d e r t a k e n t o
discuss the G o v e r n m e n t s decisions with Commonwealth and Colonial
G o v e r n m e n t s i n a d v a n c e of a n y p u b l i c s t a t e m e n t .
This implies that
they should not only be i n f o r m e d but a l s o b e given t i m e to e x p r e s s
their views before the G o v e r n m e n t s decisions a r e announced.
It
w o u l d t h e r e f o r e b e c o n v e n i e n t if t h e s t a t e m e n t o f G o v e r n m e n t p o l i c y
w e r e m a d e o n t h e s a m e d a y a s t h e p u b l i c a t i o n of t h e W h i t e P a p e r .
T h i s h a s t h e a d d i t i o n a l a d v a n t a g e t h a t t h e s t a t e m e n t of p o l i c y c a n b e
r e l a t i v e l y s h o r t a n d c a n r e f e r f o r a m o r e d e t a i l e d e x p l a n a t i o n of t h e
G o v e r n m e n t s decisions to the White P a p e r .
3.
The Cabinet
points in the White
(i)
1
s attention is particularly invited to the
Vouchers
In s u m m i n g u p the d i s c u s s i o n on t h e 8th J u l y t h e
Minister
a year;
following
Paper.
suggested that the total n u m b e r
that this would allow for
for the next two or three y e a r s ,
s t a t e m e n t to that effect nor
into quotas for
of v o u c h e r s
Prime
8,500
should be
1, 000 i m m i g r a n t s a y e a r f r o m
but that there
should be no
should the total figure otherwise be
separate countries.
Malta
public
divided
It h a s b e e n p o i n t e d out t o t h e
C o m m o n w e a l t h I m m i g r a t i o n C o m m i t t e e that the a r r a n g e m e n t s to be
m a d e for Malta cannot be kept secret
- t h e f i g u r e of 1 , 0 0 0
a y e a r h a s a l r e a d y a p p e a r e d in the p r e s s
r e c o m m e n d that the position be clearly
p a r a g r a p h 1 6 of t h e W h i t e
vouchers
- and the Committee
therefore
sta.ted in t h e t e r m s p r o p o s e d
in
Paper.
T h e C o m m i t t e e a l s o r e c o m m e n d t h a t it s h o u l d b e s t a t e d in t h e
W h i t e P a p e r t h a t n o t m o r e t h a n 1 5 p e r c e n t of C a t e g o r y A v o u c h e r s
be allotted to any one Commonwealth
country.
This modifies
C a b i n e t ' s v i e w t h a t t h e a d m i s s i o n of u n s k i l l e d w o r k e r s
g o v e r n e d b y t h e d a t e of t h e i r a p p l i c a t i o n s .
should
It i s h o w e v e r
the
be
essential
if a f a i r b a l a n c e i s t o b e m a i n t a i n e d a n d i f t h e i n t e r e s t s of s o m e
- 1 ­
of
will
the smaller Commonwealth countries and dependent territories are to be safeguarded. The distribution of vouchers cannot in any case be concealed since it is the practice to publish the figures of vouchers issued, showing the countries of origin. The Committee further recommend that the Minister of Labour
should have discretion, in granting Category A vouchers, to give a
measure of priority to the more essential types of employment,
e. g. the hospital and transport services. This is the more important
if the needs of these services are to be met within the reduced number
of Category A vouchers which will in future be issued. This system
of priorities would be subject to review from time to time and no
publicity would be given to it. The Cabinet may wish to consider
whether this would require any amendment of paragraph 17 (ii) of the
White Paper which states that applications for Category A vouchers will
be dealt with in the order of the date of their receipt, subject only to
the provision that not more than 15 per cent will go to any one
Commonwealth country.
The White Paper states that the new arrangements for the issue of vouchers will come into effect from 2nd August, i. e. simul­
taneously with the announcement of the Governments policy. This is desirable to prevent a flood of applications from Commonwealth immigrants who would be entitled to Category B vouchers under the existing scheme but who will no longer be so entitled under the new arrangements. This need not, however, prevent the Minister of Labour from dealing with applications ali*eady in the pipeline under the existing scheme during a short transitional period. (ii)
Aliens
At their meeting on 8th July the Cabinet invited the Home
Secretary to keep under review the number of aliens accepted for
permanent settlement in the United Kingdom and to bring the matter
before them if it appeared that the average was likely to rise above
6 , 0 0 0 a year. I understand that the figures for the first six months
of this year show a marked increase and that the Home Secretary is
submitting a paper to Cabinet, Meanwhile, no reference to this point
has been included in the White Paper or the statement of Government
policy.
(iii)
Dependants
The Cabinet decided that dependants should be strictly limited to wives and children under sixteen, but that there should be no change in their statutory right to accompany or follow the immigrant workers to this country. In summing up the discussion, however, the Prime Minister said that immigration officers should use their existing powers normally to refuse admission to persons of whose bona fides they were in doubt; and in exercising those powers they should take into consideration whether or not the individuals possessed a certificate of registration of their status as dependants. Paragraph 20 of the White Paper reflects these decisions. It is hoped that the scheme whereby immigrant workers would declare their dependants, so that the particulars could be checked in the country of origin and entry certificates issued, ca,n come into force on -2­
1st S e p t e m b e r .
At p r e s e n t the White P a p e r only s a y s that f o r m s will
be available "early in September".
The Cabinet m a y wish to consider
whether the n e c e s s a r y administrative a r r a n g e m e n t s can be completed
i n t i m e s o t h a t a f i r m d a t e of 1 s t S e p t e m b e r c o u l d b e g i v e n i n t h e W h i t e
P a p e r f o r t h e i n t r o d u c t i o n of t h e s c h e m e .
The Commonwealth
I m m i g r a t i o n C o m m i t t e e r e c o g n i s e t h a t it will not b e fully effective
in p r e v e n t i n g evasion.
T h e p o s s e s s i o n of a n e n t r y c e r t i f i c a t e c a n n o t
b e m a d e a c o m p u l s o r y c o n d i t i o n of e n t r y a n d i m m i g r a t i o n o f f i c e r s
m u s t r e t a i n d i s c r e t i o n t o a d m i t d e p e n d a n t s of w h o s e b o n a f i d e s t h e y
a r e s a t i s f i e d e v e n i n t h e a b s e n c e of a n e n t r y c e r t i f i c a t e .
It i s
however hoped that the s c h e m e will to s o m e extent act a s a d e t e r r e n t
a n d p r e v e n t t h e i n f l u x of d e p e n d a n t s w h i c h m i g h t o t h e r w i s e f o l l o w t h e
p u b l i c a t i o n of t h e W h i t e P a p e r .
Since there m u s t be some doubt about
t h e e f f e c t i v e n e s s of t h e s c h e m e , t h e W h i t e P a p e r p r o v i d e s t h a t t h e
H o m e S e c r e t a r y will keep under close review the administrative
a r r a n g e m e n t s as to the evidence that dependants a r e required to
furnish on a r r i v a l , and the G o v e r n m e n t will s e e k any necessa.ry legal
p o w e r s to m a k e the control effective.
(iv)
C o n d i t i o n s of
Entry
The Cabinet agreed that power
Commonwealth
should be taken to
students whose bona fides
with the Police.
require
w e r e in doubt to
The Cabinet also agreed however
register
with the
recom­
m e n d a t i o n of t h e C o m m o n w e a l t h I m m i g r a t i o n C o m m i t t e e t h a t ,
in the
c o n t e x t of a g e n e r a l p o w e r t o i m p o s e c o n d i t i o n s of e n t r y o n a l l
Commonwealth citizens,
the r e q u i r e m e n t to r e g i s t e r with the
should not be i m p o s e d unless conferred by a statutory
subject to the Affirmative Resolution p r o c e d u r e .
Police
instrument
The stage at
the r e q u i r e m e n t to r e g i s t e r with the Police will be introduced
r e g a r d t o s t u d e n t s o r o t h e r c a t e g o r i e s of C o m m o n w e a l t h
citizens
entering the United Kingdom will have to be resolved when
legislation is drafted.
Immigration Committee
F o r the time being the
new
Commonwealth
r e c o m m e n d t h a t it i s u n n e c e s s a r y t o b e
s p e c i f i c t h a n i s s u g g e s t e d in p a r a g r a p h s
(v)
Financial A s s i s t a n c e for
Local
Labour
the Commonwealth Immigration
consider it essential that the White P a p e r
should contain a
that financial a s s i s t a n c e will be available in c e r t a i n
T h i s p l e d g e i s c o n t a i n e d i n p a r a g r a p h 6 2 of t h e d r a f t .
r e s e r v e d their position in the C o m m i t t e e .
Paper.
Authorities
I n v i e w of t h e s t a t e m e n t i n t h e M a n i f e s t o t h a t " a
immigrants have settled",
more
2 3 a n d 2 4 of t h e W h i t e
G o v e r n m e n t will give special help to local authorities in a r e a s
where
Committee
pledge
circumstances.
The
T h e y point out
Treasury
that
although the total expenditure involved is unlikely to be large,
s c o p e of t h i s v e r y
which
in
the
special grant (which would need legislation),
w a y i n w h i c h it w o u l d o p e r a t e ,
?*nd h o w o v e r l a p p i n g w i t h t h e
a r r a n g e m e n t s for assisting local authorities
yet to be w o r k e d out.
They also feel that the p a r a g r a p h as
credit for the G o v e r n m e n t ^
existing
can be avoided,
m i g h t e n c o u r a g e local a u t h o r i t i e s to expect too m u c h
p r o p o s a l s v/ould b e l o s t .
have
drafted
so that
the
If i t i s
a s e s s e n t i a l to enter into a c o m m i t m e n t to financial a s s i s t a n c e
-3­
the
regarded
before
a d e t a i l e d s c h e m e could b e w o r k e d out, they suggest that the
p a r a g r a p h should be a m e n d e d to r e a d j ­
"In s o m e a r e a s , the l o c a l a u t h o r i t y m a y need to u n d e r t a k e
exceptional c o m m i t m e n t s for a l i m i t e d period by
e n g a g i n g e x t r a staff in o r d e r t o e a s e t h o s e p r e s s u r e s on
the social s e r v i c e s which a r i s e from differences in
language and c u l t u r a l background and to deal with p r o b l e m s
of t r a n s i t i o n a n d a d j u s t m e n t .
The Government propose
to s e e k p o w e r s to give s p e c i a l f i n a n c i a l h e l p t o w a r d s
a p p r o v e d e x p e n d i t u r e in such c a s e s w h e r e n e e d is shown. "
T h e C a b i n e t m a y w i s h t o c o n s i d e r w h i c h of t h e s e t e x t s
be adopted.
should
4.
K n o w l e d g e of E n g l i s h .
The Mountbatten Report recommended
that i m m i g r a n t s who c a m e to w o r k should have to satisfy the B r i t i s h
H i g h C o m m i s s i o n i n t h e c o u n t r y of o r i g i n t h a t t h e y h a v e s u f f i c i e n t
English to b e c o m e a s s i m i l a t e d to the B r i t i s h c o m m u n i t y .
The Report
d r e w a t t e n t i o n h o w e v e r ( p a r a g r a p h 69) t o t h e d i f f i c u l t y of m a k i n g s u c h
a condition effective and also to the fact that in s o m e C o m m o n w e a l t h
c o u n t r i e s ^ a b o v e a l l P a k i s t a n , it would v i r t u a l l y e l i m i n a t e t h e g r a n t
of C a t e g o r y A v o u c h e r s .
T h e v i e w of t h e C o m m o n w e a l t h I m m i g r a t i o n
C o m m i t t e e is that this condition is d e s i r a b l e in principle but that
a r r a n g e m e n t s to give effect to it would t a k e t i m e to w o r k out.
M o r e o v e r , it would i n v o l v e d i s c r i m i n a t i o n a g a i n s t C o m m o n w e a l t h
i m m i g r a n t s a s c o m p a r e d with a l i e n s , and u n d e r the n e w v o u c h e r
a r r a n g e m e n t s t h e n u m b e r of i m m i g r a n t w o r k e r s f r o m t h e C o m m o n ­
wealth e n t e r i n g the United Kingdom who do not speak adequate
E n g l i s h should be m u c h r e d u c e d (the condition could n o t , in any c a s e ,
be applied to dependants).
The Commonwealth Immigration Committee
t h e r e f o r e r e c o m m e n d t h a t t h i s c o n d i t i o n of e n t r y s h o u l d n o t b e
i m p o s e d , at l e a s t for the t i m e b e i n g , and that no r e f e r e n c e to the
m a t t e r b e m a d e in the White P a p e r .
5.
I n t h e C a b i n e t d i s c u s s i o n of t h e d r a f t V/hite P a p e r o n t h e A i d
P r o g r a m m e o n 2 0 t h J u l y ( C . C. ( 6 5 ) 3 9 t h C o n c l u s i o n s , I t e m 2) t h e
point w a s m a d e t h a t t h e d r a f t should be e x a m i n e d in p a r a l l e l with t h e
d r a f t of t h e p r o p o s e d V / h i t e P a p e r o n L m r n i g r a t i o n i n o r d e r t o
e n s u r e that t h e r e was no inconsistency between t h e m as r e g a r d s their
r e s p e c t i v e t r e a t m e n t of s u c h q u e s t i o n s a s o v e r s e a s t u d e n t s .
The two
d r a f t White P a p e r s h a v e b e e n e x a m i n e d a n d c e r t a i n a m e n d m e n t s h a v e
b e e n m a d e to each in o r d e r to e n s u r e that t h e r e is no inconsistency.
H. B .
P r i v y Council Office,
23rd July,
S, W . 1.
1965
-4­
.ANREX
A
DRAFT WHITE PAPER
IMMIGRATION FROM THE COMMONWEALTH
PART I INTRODUCTION
A POLICY FOR THE FUTURE
This paper sets out the Governments future policy on immlgratton
to Britain from other parts of the Commonwealth and the problems
to which it has given rise.
This policy has two aspects:
one
relating to control on the entry of immigrants so that it does
not outrun Britain's capacity to absorb them;
the other relating
to positive measures designed to secure for the immigrants and
their children their rightful place in our society, and to assist
local authorities and other bodies in areas of high immigration
in dealing with certain problems which have arisen.
Immigration up to 1962
2.
Until 1962 every Commonwealth citizen was entitled to enter
the United Kingdom at will.
This right had been freely exercised
for many years but it was only in the ten years from 1952 onwards
that a substantial number of people from the Commonwealth began
to think of settling in Britain.
From 1955 a rough count was
kept cf the number of Commonwealth citizens from the Caribbean,
Asia, East and West Africa and the Mediterranean entering and
leaving the country.
30th
During the period from 1 s t January 1955 to
June 1962 the net intake (that is, the total number
entering during the year less the total number leaving during the
same year) is estimated to have been as follows:
1955
1+2,700
1956
1+6,850
1957
1+2,400
1958
29,850
1959
21,600
- 1 ­
i960
57,700
1961
136,koo
1962
(to 3 0 t h June)*
3.
94,900
Britain has always been reluctant to restrict the entry of
people who hope to find greater opportunities within her shores- It is
only during the past 60 years that control has been continuously
exercised over foreign immigration.
It was with even greater
reluctance that control over immigration from the Commonwealth
was introduced in 1 9 6 2 .
The operation of the Commonwealth
Immigrants *.ot over the past three years is described in the
following paragraphs.
The present control h.
Section 2 of the Act gives an immigration officer power to
refuse admission or to admit subject to a condition restricting
the period of stay, with or without a condition restricting
freedom to take employment.
People born in the United Kingdom
and certain classes of people holding United Kingdom passports
are, however, completely exempt from control.
There is also no
general power to refuse admission to people ordinarily resident
here, to holders of Ministry of Labour vouchers or to wives and
children under 16 accompanying or joining their husbands or
parents, nor is there any power to admit them subject to
conditions.
Returning residents, wives and children under 16 may
be refused admission only if the subject of a deportation order;
voucher holders, students and persons ef independent means
(including visitors) may be refused admission on that ground,
on medical or security grounds or en account of criminal record.
*The statistics for the period since 1 s t July 1 9 6 2 , when
Commonwealth citizens became subject to immigration control,
are collected on a different basis. They are summarised in
paragraph /9"7 below.
-2­
The immigration officers' powers are exercised in accordance with
published instructions (Cmnd, 1716) that were put before Parliament
in draft while the Bill was being debated.
5.
A Commonwealth citizen who wants to work and settle in the United Kingdom must first obtain a Ministry of Labour voucher. Applications for vouchers are placed in three categories:
Category
A is for applications by employers in this country who have a specific job to offer to a particular Commonwealth citizen, Category B is for applications by Commonwealth citizens without a specific job to come to but with certain special qualifications (e.g. nurses, teachers, doctors) and Category C is far all others. Applications in Categories A and B are given priority.
The issue of vouchers in Category C has been subject to the condition that no country shall receive more than a quarter of the vouchers available for issue, and within Category C preference is given to applicants who have served in our" Armed Forces. Vouchers have been issued to other applicants in Category C in the order in which their applications are received in London. 6.
The rate at which vouchers are issued is decided by the
Government and has varied from time to time.
In 1962 and the
first months of 1963 a high proportion of the vouchers issued were
not taken up and the rate of issue was therefore increased.
But as
time went on a much higher- proportion of the vouchers came to be
used.
The rate of issue was then reduced and for some time has
been at the rate of U00 a week;
being used.
*f these about three-quarters are
When the scheme first started it was thought that
most of the vouchers would be issued to applicants in Category C;
but since September 19 6U. the two priority classes, Categories A
and B, have taken up the whole issue of hOO vouchers a week and
have left none over for applicants in Category C.
A waiting list
of over 300*000 applicants has grown up in this category.
7.
The Act gives an absolute right of entry to the wife and any
child under 16 of a Commonwealth citizen who accompanies them to
the United Kingdom or is already resident here.
Certain ather
categories of dependants are in practice, but purely b y way
of discretion, also admitted without vouchers, e.g.
(a) a child under 16 coming to join a close relative
other than a parent;
(b) a son or daughter aged 16 but under 18 coming with
or to join a parent;
(c) the fiancee or "common law wife" of a man settled here; (d) the widowed mother or elderly parents of a person settled here. 8.
Bona fide students and visitors have been freely admitted.
They have benefited by the arrangement under which any
Commonwealth citizen seeking admission without a voucher may
apply for an "entry certificate" before leaving home to make
reasonably sure of being admitted on arrival.
Immigration since 1962
9.
Statistics of the movement to and from the United Kingdom
of Commonwealth citizens subject to immigration control have
been published:
detailed figures can be found in Cmnd. 2379
and Cmnd. 2 6 5 8 .
The main figures are summarised below with
figures for the first six months of 1 9 6 5 :
Citizens of Canada, Australia or New Zealand
1963
196k
Numbers admitted, by categories
1965
Jan-June
a.
visitors
130,625
151,737
76,680
b.
students
2,11k
2,073
696
c.
voucher-holders
1 ,kk7
d.
others admitted for
settlement (mainly
dependants)
2,288
2,2k3
1,011
51,093
55,369
25,753
e.
remainder (mainly
"returning residents")
-k­
817
321
Citizens of Canada, Australia or New Zealand (contd.)
1963
196k
1 . Total no. admitted
137,567
212,739
Jan-June
10k,k66
2 .
178,616
199,357
83,752
8,951
13,332
15,71k
5,216
10,322
1k,382
Total no. embarked
3. Net balance
k. Difference between net
balance (3) and number
deliberately admitted
for settlement (c * d)
Commonwealth citizens frorn^other. Commonwealth countries and dependant torritories 1963
Numbers admitted, by
196k
1 965
Jan-June
C a t OpjO P I G S
62,325
25,733
students
57,365
16,370
I3,0kk
k,53l
c.
voucher-holders
28,673
13,888
6,771
d.
others admitted for
settlement (mainly
dependants)
27,393
38,952
19,3k9
k8,36k
173,170
121,121
57,0k9
60,153
27,939
193,362
3k,923
131 , 7 k 5
51,5k0
62,117
33,333
9,277
6,763
a.
visitors
b.
e.
remainder (mainly
"returning residents )
51
1.
Total no. admitted
2 .
Total no. embarked
3.
Net balance
k.
Difference between net
balance (3) and number
deliberately admitted
for settlement (c -\- d)
973
One striking feature of these statistics is the extent to which a reduction in the number of voucher-holders admitted has been counterbalanced by an increase in the number of dependants accompanying or joining the head of the family. 10.
The number of immigrants from the areas of the Commonwealth
mentioned in paragraph 2 now settled in Britain, together with
the children born to them here, cannot be estimated with any
precision but probably lies between 7 5 0 , 0 0 0 and one million.
The number of people overseas who have a right of entry to
-5­
this country as a result of their husbands or parents having already emigrated here is considerable;
it is not possible to make any accurate assessment of the figure. Recent developments 11.
Part I of the Commonwealth Immigrants Act, which provides
for control of immigration, requires annual renewal.
(Part II,
which relates to deportation, is permanent legislation.)
Shortly after taking office in October 19*54 the present
Government obtained from Parliament the renewal of Part I of
the Act for a further year pending consultation with other
Commonwealth governments on the whole question of immigration.
12.
On 4 t h February 1965 the Home Secretary informed the
House of Commons (Official Report, cols. 1 2 8 4 - 8 ) that he had
found evidence that evasion of the existing control was being
practised on a considerable scale­
-He was therefore
instructing immigration officers to scrutinise more carefully
the intentions and bona fides of Commonwealth citizens who
sought entry, and to make fuller use of their power to impose
conditions.
One effect of the latter instruction is that
students5 although admitted as freely as before, are now
admitted only for a specified period, which is extended if
necessary so long as they are genuinely pursuing their studies.
The Home Secretary also announced his decision to reinforce the
staffs in certain posts overseas dealing with applications for
entry certificates by assigning to them experienced immigration
officers.
13.
On 9 t h March the Prime Minister announced in the House
(Official Report, cols. 2 4 8 - 5 5 ) that a high-level mission - of
which Lord Mountbatten of Burma was later named as the leader ­
would visit a number of Commonwealth countries and discuss with
-6­
their governments means of regulating the flow of immigrants
to this country, including measures to reduce evasion of the
control.
The mission visited Malta, India, Nigeria, Canada,
Jamaica, Trinidad a n d Tob^p, Cyprus and Pokist:in.
Lore Mountertten's
report to the Prime Minister on the mission's discussions
with Commonwealth governments must remain confidential;
hut
it can he said that these discussions were most useful in
promoting a genuine understanding of Britain's difficulties
and of the need to control the entry of immigrants to our
small and overcrowded country.
-7­
PART II FUTURE POLICY ON CONTROL OF IMMIGRATION Vouchers
1k,
The existing system for the issue of vouchers has "been
described in Part I.
Vouchers are currently being issued at
the rate of 4 0 0 a week or 2 0 , 8 0 0 a year.
196h
Since September
vouchers have only been issued for Category A (immigrants
with a specific job to come to in this country) and Category B
(immigrants with certain special qualifications wr skills).
15o
Since there is n&v no prospect of renewing the issue of
Category C vouchers it has been decided that this category
should be discontinued.
16.
It has further been decided that, with effect from
2nd August 1 9 6 5 , the rate of issue of vouchers shall be 7 , 5 0 0
per year.
To give effect to existing commitments entered into
because of the special problems of Malta, an additional 1,000
vouchers will, as a temporary measure;, be allocated to citizens
of Malta who satisfy the conditions of the voucher scheme.
These special arrangements for Malta will be reviewed after
two years.
17o
Vouchers will continue to be issued
(i)
in Category B to persons with certain special qualifications or skills, as follows: (a) doctors, dentists and trained nurses; (b) teachers who are eligible for the status of qualified teacher in this country; -8­
(c)
graduates in science or technology who have had at least two years' experience in suitable employment since graduation;
(d)
and
non-graduates with certain professional qualifications who have had at least two years experience in suitable employment since qualifying;
and
(ii) in Category A tc applicants who have a specific job
to cbme to in this country,,
These applications
will be dealt with in the order of the date of
their receipt, subject to the provision that not
more than 1 5 per cent cf the vouchers issued in
Category A will gc te any one Commonwealth country
0
18O
The need for immigrant workers from the Commonwealth
for seasonal employment presents a special problem which
will be dealt with outside the voucher scheme
0
further
announcement will be made about this in due course.
19o
Consideration is also being given to the development of
arrangements under which Commonwealth citizens come to this
country for limited periods for industrial training,,
The
Government recognise the value of these schemes for the developing countries of the Commonwealth and will do their best to promote them. -9­
Dependants
20
0
The Government propose no change in the statutory right of
the wife of an immigrant and his children
or follow him to this country
0
under 1b to accompany
Immigration officers will,
however, with a view to preventing evasion, be instructed to
apply strict tests of eligibility, and will take into account
whether the would-be entrant produces on arrival an entry
certificate issued in the country of origin or other appropriate
documents establishing his or her identity.
An entry certificate
will not be issued unless the head of the household, whether
resident in this country or intending to come in the future,
has furnished to the Home Office or, as the case may be, the
British post in his country of origin, particulars of his
dependants in time to enable the information he has given to be
confirmed before the entry certificate is needed.,
Forms for
this purpose will be available early in September,,
The Home
Secretary will keep under close review the administrative
arrangements as to the evidence that dependants are required to
furnish on arrival, and the Government will seek any necessary
legal powers to make the control effective,
21o
The Government have reviewed the present practice of
admitting freely children aged 16 and under 18 who are coming
to join one or both parents.
In its present
form the concession provides a means of securing the
"Child" includes a stepchild, an adopted child and, in relation to the mother only, an illegitimate child. -1 0 ­
admission of young immigrant workers without vouchers, and the
Government have decided that it must he withdrawn.
The Home
Secretary will nevertheless he prepared to consider individual
applications for the admission of sons and daughters aged 16 and
under 18 whose exclusion would cause hardship.
22.
The same considerations apply to children under 16 joining
a relative other than a parent or joining a putative father.
They have hitherto been admitted if the immigration officer is
satisfied that proper arrangements have been made for the child
to be looked after.
Many have arrived, at or near school­
leaving age, simply to enter employment in this country without
having to wait for a voucher.
Some immigrants have brought in
nephews or cousins mf working age in preference to younger
children of their own.
The Government have decided that this
concession must be withdrawn, although the Home Secretary will
use
his discretion to give permission to enter in individual
cases when hardship can be shown.
Students and visitors
23.
The Government will continue to welcome people who '' come from other Commonwealth countries en holiday, social or business visits or to follow a course of studies.
At the same time it is important to prevent people admitted on the pretext of a visit or a course of study from obtaining permanent settlement.
The Government will therefore continue the present practice of admitting students for a limited period relating to the duration of the course of study which has been arranged, but generally limited to a year in the first instance.
It is also proposed to impose on visits by Commonwealth citizens a time limit of up to six months, which will be freely extended if good cause is shown.
Evasion cf the control
24.,
The CommonwealthvImmigrants Act at present exempts certain
classes of Commonwealth citizen - returning residents, voucher
-It-CONFIDENTIAL
X
holders, and wives and dependent children - from the
imposition of conditions of admission.
"
1.^-^
There are some
individuals claiming to fall into one of these categories ­
dependants, in particular - about whose bona fides the
immigration officer may feel doubt without having sufficiently
strong grounds to make him feel justified in refusing admission.
The Government propose to seek a general power to impose
conditions on the admission of any Commonwealth citizen who is
subject to control.
This power would be exercised with ..
discretion and would not be used in any way to impose
unnecessary restrictions on people with a clear right of
admission for permanent residence.
25.
If a person admitted to this country for a limited period
remains here after that period has expired, it is difficult,
very often impossible, to trace him.
An alien admitted for a
limited period longer than three months is normally required
to register with
the police in the area where he is
going to stay, depositing a photograph, and to keep them
informed of any change in his address or employment.
The
Government do not consider it necessary or appropriate tc
impose a similar obligation on all Commonwealth citizens
temporarily resident in this country, or on any particular
class such as visitors or students.
There are, however, some
individuals in these or other classes who the immigration
officer has good reason to suppose are unlikely to comply with
their conditions of admission unless they are subject to some
further supervision.
The Government propose to seek power for
an immigration officer to include among the conditions on which
a particular Commonwealth citizen is admitted .one requiring him
to register with the police.
This power, again, would be
exercised sparingly and with discretion;
but it should be a
valuable check on the minority who seek to evade the law,
-12­
Repatriation 26.
At present a Commonwealth citizen may he deported only if a court has made a recommendation to that effect on convicting him of a crime punishable by imprisonment.
This rule ensures to the person concerned the open consideration of his case by a judicial authority, with a right to be heard in his own defence; but there are disadvantages in this limitation on the Home Secretary's power.
Not all the facts may be before the court, which may therefore refrain from making a recommendation in a case where it could otherwise have done so.
Different courts take inconsistent views of similar cases, so that of two immigrants equally undesirable the Home Secretary may be able to repatriate one but not the other.
There may be evidence - of conduct or activities falling short of criminal - which clearly points to repatriation but cannot be made the basis of a criminal charge. 27.
The Government regard it as important that there should be
a speedy and effective power to repatriate immigrants who in one
way or another evade the stricter control over immigration that
is now envisaged.
Without it the effectiveness of the control
would be greatly weakened.
If a person has obtained entry by
misrepresentation or has flouted the conditions on which he was
admitted, there is little point in bringing him before a court
for punishment as a criminal.
To vindicate the law it is both
necessary and sufficient, in all but the most exceptional
circumstances, to repatriate him with the least possible delay.
28,
It is therefore the Governments intention to seek fer the
Home Secretary a general power - in addition to his power to
act on the recommendation of a court - to repatriate a
Commonwealth citizen if he considers the public interest to
require it.
This power, like the existing power of deportation,
would be limited to Commonwealth citizens resident here for less
-13­
than five years.
If an alien whom the Home Secretary
proposes to deport, otherwise than on the recommendation of a
court or on security grounds, has been lawfully resident in
the United Kingdom for more than two years, he has since 1956
been given an opportunity to make representations to the Chief
Metropolitan Magistrate, who then advises the Home Secretary
whether or not a deportation order should be made,"
the final
decision rests with the Home Secretary, who has so far always
acted in accordance with the Chief Magistrate's advice..
The
Government propose that the oppornunity to make representations
to /the Chief Magistrate/ against repatriation in similar
7
circumstances should be accorded to a Commonwealth citizen who
has been lawfully resident in the United Kingdom for more than
six monthso
Health
29"
Immigration has not created a serious public health
hazard;
and such problems as have arisen in the areas where
immigrants have settled have been due in the main to diffi­
culties of adaptation to new conditions, and to disease being
contracted after arrival rather than brought in.
30.
There have, however, been instances of infectious disease,
especially pulmonary tuberculosis, being brought into the
countryo
Where the necessary legal powers were available,
the Government have tried to prevent thiso
In 1 9 6 k , as a
result of medical inspections carried out at the ports 66
persons (60 aliens and 8 from the Commonwealth) were refused
entry on medical grounds.
Where the power to refuse entry
was not available, as in the case of the dependants of
Commonwealth immigrants, the Government have sought to secure
early treatment in the area of settlement0
With this aim,
measures have been taken, in collaboration with port and local
-1k-
CONFS0ENT8AI -
144
health authorities and general practitioners, to secure that
an immigrant gets on the list of a family doctor immediately
after arrival, is medically examined and has an X-ray if the
doctor thinks this advisable.
31 *
These arrangements were improved at the beginning of this
year when, among other measures, X-ray apparatus was installed
at London AirportJ
and It is the Governments intention to
make further improvements in the health checks at ports of
entry­
32.
It has been decided that in future an immigrant should
normally be expected to produce evidence of having undergone a
medical test in his own country - both as a wise precaution and
because this should reduce the risk of our having to refuse the
immigrant entry at our ports.
Because of the absence of the
necessary legal powers it has not hitherto been possible to
bring dependants of Commonwealth immigrants fully within the
arrangements for medical inspection at ports.
The Government
have now decided that an additional power should be taken so
that, at the discretion of the immigration authorities, any
immigrant, including dependants, may be medically examined at
the port of entry and may be required as a condition of entry
to this country to report to a Medical Officer of Health with
a view to necessary medical treatment being arranged.
There will
however be no question of refusing entry on medical grounds to
entitled dependants and powers will not be taken to do this.
33'
Medical tests abroad will take time to organise in
collaboration with the other Governments concerned, and
legislation is needed before new conditions can be attached
to entry.
The necessary preparation will be put in hand, and
the new arrangements introduced over a period.
- 1 5 ­
INTEGRATION PART III
3h*
The United Kingdom is already a multi-racial society and
Commonwealth immigrants make a most valuable contribution to
our economy.
Most of them will stay and bring up their families
here and there can be no question of allowing any of them to be
regarded as second class citizens^
At the same time it is only
honest to recognise that the presence in this country of nearly
one million immigrants from the Commonwealth with different
social and cultural backgrounds raises a number of problems and
creates various social tensions in those areas where they have
concentrated..
If we are to avoid the evil of racial strife and
if harmonious relations between the different races who now form
our community are to develop, these problems and tensions must
be resolved and removed so that individual members of every racial
group can mingle freely with all other citizens at school, at
work and during their leisure time without any form of discrimi­
nation being exercised against t h e m e
where the social services are already under strain
35'
The concentration of immigrants in certain urban areas/has
arisen partly at least because these are the areas where most
job opportunities existo
The difficulties Yvhich arise in these
areas fall broadly under the four headings of housing, education,
employment and health..
Housing
36,
Large numbers of Commonwealth immigrants are living- in
conditions which are unsatisfactory, which present serious
problems for the local housing authorities, and which lead to
tension between the immigrants and their neighbours0
The main
reason for this is that the areas where Commonwealth immigrants,
among others, have settled are those where the housing shortage
is already most acuteo
housing shortageo
Commonwealth immigrants do not cause the
It existed before they began to arrive in
large numberso
-16­
37"
The Government endorse the strongly held view of the
Commonwealth Immigrants Advisory C o u n c i ^ that it would he wrong
to give special treatment to immigrants in housing matters.
The
sole test for action in the housing field is the quality and
nature of housing need without distinctions based on the origin
of those in need.
The solution must lie in a determined attack
on the housing shortage generally and particularly on the shortage
of accommodation to rent on reasonable terms.
The Government
have already announced that a much larger part of the housing
programme, in the form of a higher proportion of local authority
building, will be devoted to providing rented accommodation for
those whose housing need is most acute.
This development in
policy will itself benefit the immigrant section of the community.
380
The fact that in the more thickly populated parts of the
country it will take many years to overhaul the housing shortage
does not mean that no immediate action is possible to relieve the
immigrants' housing problems and to assist in their integration
into the community.
Local housing authorities already have a
wide range of powers, which, if judiciously used, can make a
major contribution to this end.
As time goes on, immigrants will
qualify for rehousing by local authorities either by virtue of
residential qualifications or through beinf displaced by slum
clearance or other redevelopment.
Thus it will become commonplace
for Commonwealth immigrants to be rehoused by local authorities in
pursuance of their normal statutory responsibilities.
This in
itself will tend to break up excessive and undesirable concen­
tration.
39.
More immediately, housing associations can play a part in
providing accommodations for immigrants and in the process can
help to promote their integration.
Local authorities will, it is
hoped, do their utmost to assist and promote housing associations
which have integration.as one of their aims.
*First Report - Cmnd. 2119 -17-
C O N F I D E N T I AC
14'1
kO,
The main cause of unsatisfactory living conditions among
immigrants is the multiple occupation of houses
designed for only one family.
3?
originally
The limited powers available under
the Housing Act I 9 6 I to improve conditions in such houses were
somewhat strengthened by the Housing Act 1 9 6 k .
But when this
legislation was framed, the gravity of the problem was not fully
realised,,
The Minister of Housing and Local Government is
therefore examining the powers with a view to making them more
effective,
Birmingham City Council has already taken power in
local legislation to require registration of houses
multioccupation begins.
before
The need for legislation to extend
similar or additional powers to local authorities generally is
now being considered.
Education
kl.
The educational problems in areas where there is a concentra­
tion of immigrants were considered in a circular (No,7/65)
issued by the Department of Education and Science on lkth June,
1965o
The circular makes a number of suggestions which are set
out in the following paragraphs.
k2.
Within the schools, most of the difficulties arise from the
fact that numbers of immigrant children newly arrived from
overseas are brought to school without previous warning, often
knowing little or no English, and ignorant of the normal social
habits and ways of life in this country.
The main educational
need of the children from the areas where English is not in
common use is to learn the language quickly and effectively, so
that they can join in the normal work of the school, and develop
their talents and abilities to the full;
at the same time, it
is important that the general standards of the school should be
maintained.
To achieve both these aims requires teaching skill
of a high order, supported by administrative and other measures
designed to lessen the burden falling on the teachers,
-18C O N F I D E N T I A L
N
­
1+3o
In order to maintain the standard of education in schools
attended by large numbers of immigrant children with language
difficulties special arrangements must he made to teach them
English and to "bring them up to the general standards achieved
b y the other -children.
This will often mean special classes for
the immigrant children for at least part of the day, although from
the "beginning they should join as far as possible in the normal
social life of the school and take their place in the ordinary
classes as their command of English allows.
l+l+o
Such arrangements can more easily be made, and the integra­
tion of the immigrants more readily achieved, if the proportion of
immigrant children in a school is not allowed to rise too high.
The circular suggests that about one-third of immigrant children
is the maximum that is normally acceptable in a school if social
strains are to be avoided and educational standards maintained.
Local education authorities are advised to arrange for the
dispersal of immigrant children ever a greater number of schools
in order to avoid undue concentration in any particular school.
1+5.
Special arrangements for the teaching of immigrant children
will often necessitate a more generous teaching staff ratio in
the schools.
The Department of Education and Science is prepared
to increase the teacher quota in areas where special staffing
arrangements are required in schools with a high proportion of
immigrants.
Though this may not be of much help in areas which
are already seriously short of teachers, a number of authorities
have been able to make use of the services of part-time teachers
to good effecto
1+6.
The burden on the teachers can also be relieved by the
employment of more welfare and clerical assistants to help in
the social training of the immigrant children and to establish a
link between the school and the home.
- 1 9 ­
117*
Arrangements have been made or are under discussion for
the provision of special courses of trainings both for English
teachers of immigrant children and for teachers and potential
teachers among the immigrants themselves.
Some of the latter,
although possessing paper qualifications, are not employable as
teachers here because of their inadequate English and their
unfamiliar!ty with modern teaching methods in this country.
It
is proposed that the first full-time courses for immigrant
teachers should begin early in 1 9 6 6 ;
provision of part-time
courses is also being considered.
U8o
Adult immigrants, who come to this country to work in a
variety of jobs, also need courses, most of all in English, so
that they can learn to communicate with English people, but also
in the customs, practices and traditions of this country which
it would be to their advantage to adopt.
Many local education
authorities are already taking a keen interest in providing
appropriate courses, although in some areas attendance is not
always well maintained.
The Department's circular suggests an
intensification of these efforts by authorities, and looks to
employers, trade unions and all others concerned to encourage
and support them in any way they can.
In particular, authorities
should bring their educational facilities to the attention of
immigrants by providing publicity leaflets and. notices for display
at local employment exchanges and in other places likely to be
frequented by immigrants.
They should also seek the co-operation
of leaders of local immigrant communities and associations in
making facilities known to their members.
U3'
Increasing interest is being taken in the now problems that
have become evident in the teaching of immigrants, and many
people feel the need for further research and for the development
of new materials and teaching aids.
-20­
In addition to research
which is already in progress and the experimental use in some areas of such aids as language laboratories;, discussions are taking place about the possibility of using the resources of educational broadcasting both television and radio, to stimulate active interest among the immigrants themselves, and to promote their integration within the community. 50.
Service by young people, not only overseas but also to the community in this country, is an accepted and growing feature of the youth service.
The co-ordination of this activity is now being considered by a Committee of the Youth Service Development Council. Service with immigrant communities is already undertaken by some young people, and its development is to be encouraged. 51.
As time goes on, further local and regional courses and conferences will be arranged by local education authorities to discuss all aspects of the education of immigrants, and to assist
in the co-ordination of the work being done by the authorities themselves and by voluntary liaison committees and other groups on which immigrants are represented. Employment 52.
The great majority of immigrants are fully employed, working
in a wide range of occupations in many industries.
Nevertheless
there are indications that, in certain respects, discrimination still persists. -21­
CONFIDENTIAL 53*
This
complex issue
is
effective, if unobtrusive, ways.
Employment Exchanges.
151
being tackled in a number of
First there is the work of the
The Government make
it a rule that an
employer who attaches discriminatory conditions is not to be
helped by the Exchanges to fill vacancies if it appears that
he is acting out of personal prejudice and that he is intransigent.
But indications of discrimination in notifying vacancies also
give the Exchange the chance to make a positive contribution by
finding out what is at the root of the trouble so that they can
try by persuasion and reasoning to ease the way to a better
understanding and attempt to overcome any difficulties that may
exist.
In this way considerable progress has already been made
and will continue to be made.
The Youth Employment Service has
also been making vigorous efforts to help Commonwealth immigrant
school-leavers to obtain employment and training suitable to their
abilities on equal terms with other young people, and these efforts
have met with a welcome measure of success.
The Trade Unions
have declared themselves unequivocally against discriminatory
practices.
Many of them have promoted valuable educational
activities for immigrants themselves or to help others to
understand immigrant problems.
There is scope for collaboration
between managements and trade unionists, especially at the local level, in developing mutual understanding between immigrants and the host community at the work place
and the Government intend to do everything possible to forward this process. Health 54'
Any discussion of immigrants and the health services must
begin with a recognition of the valuable contribution made by
immigrants towards the staffing of these services.
The
efficient running of our hospitals in particular, depends in no
small measure on the service given by doctors, nurses, domestics
and other staff drawn from all parts of the Commonwealth.
The
Government gratefully acknowledge the essential contribution they
make to the well-being of the whole community, and are glad to
feal that those who later return home obtain experience here
which will be of value to them in their own countries.
-22-
C O M F S D E M T I A l *^
X5^
55"
This paper has already described measures which the
Government propose to take to require immigrants to produce
evidence of having undergone medical tests in their own country,
to improve health checks at our ports of entry and, where necessary,
to make reference to a Medical Officer of Health, with a view
to obtaining necessary medical treatment, a condition of entry.
It must, however, be recognised that even with the introduction
of these measures, many immigrants will, for a variety of reasons,
continue to impose a relatively heavy burden on the health
services.
Their needs are different in degree rather than in
kind but they require the special attention of the responsible
authorities even though the general objective must be to meet
them in the same way as the needs of other citizens.
56.
There is first of all the general problem of communication.
Many immigrants speak no English and some of them are illiterate;
this means the expenditure of a disproportionate amount of time
by the staff who have to deal with them.
Much can be done by the
employment of suitable members of the immigrant communities
themselves to work as health visitors, home nurses or midwives,
welfare officers and home helps or to assist local authority and
hospital staffs in other ways.
57"
The main problem presented to local authorities is the
detection and prevention of tuberculosis.
The incidence of the
disease has been found in several areas to be appreciably higher
among Asian immigrants than in the rest of the population.
To a
limited extent the disease has been brought by the immigrants
themselves but its incidence is for the most part the result of
their living conditions in this country.
Local authorities have
been active in arranging for chest X-rays for adult immigrants
by miniature radiography or otherwise, and for tuberculin testing
-23-
CONFIDENTIAL
and B.C.G? vaccination of children.,
Medical Officers of Health
were advised in April by the Chief Medical Officer of the Ministry
of Health to apply these arrangements to all immigrant children
and to newly arrived adults (with X-ray and supervision if
necessary for positive reactors)o
B.CoG.
vaccine for these
purposes is supplied free by the Ministry of Health.,
580
One of the main pressures that Commonwealth immigrants exert
on local hospital facilities arises from the fact that their poor
housing conditions are unsuitable for home confinements and that
this leads to a heavy demand for hospital maternity beds.
The
hospital building; programme is currently under review by Regional
Hospital Boards, and this will take account of all the factors,
including the presence of immigrants, which are relevant to the
provision of a hospital service.
Since the resources available
for hospital building are not enough to meet present needs, it
will be necessary for Boards to determine priorities in order to
deploy those resources in the areas of greatest medical need of
the population of an area as a whole, without discrimination.,
The hospital building programme should thus ensure that the
adequacy of the hospital service in a particular area will not
depend on the country of origin of its population.,
It must,
however, be recognised that there may be pressures on hospitals
in certain areas for several years until the necessary hospital
building schemes can be planned and executed.
59o
A special problem is that of the care of the young children
of immigrant mothers who are at work.
Child-minding is sometimes
arranged in unsuitable surroundings and in unsatisfactory care.
Local authorities were asked in April to review their arrangements
for inspection and supervision and to report to the Minister of
Health by 3 1 st July.
-24CONF1DENTIAL
^
Information 60.
The Milner Holland Committee drew attention to the unfor­
tunate consequences of the fact that Commonwealth immigrants arrive in this country with very little knowledge of housing conditionsj of the rights and duties of landlords and tenants in this country, and of the pitfalls which lie in the way of unwary house purchasers.
Similarly, there are many other aspects of life in this country which immigrants have difficulty in understanding, for example their rights and responsibilities under the provisions of our various health acts.
A number of local authorities already produce leaflets on various subjects in different languages and the Government are examining the need for supplementing this material by centrally-produced leaflets or in other ways. Financial assistance for local authorities 61.
At present the main local services which may be under
pressure in areas where immigrants have settled (housing,
education and health) are assisted either through the General
Grant or by specific subsidies or grants.
The formula by which
the General Grant is distributed is related to the population
of each local authority area and is weighted to take account,
among other factors, of the proportion of old and young (including
school children) in the population.
Thus if the total (or the
child) population in an area is increased for whatever reason,
the normal machinery will take this into account in. distributing
the grant to local authorities for them to use according to local
needs.
In the case of housing, subsidies and grants from the
Exchequer are directly related to specific local authority projects
so that increased capital expenditure by a local authority in this
field will automatically attract increased Government assistance.
62.
In some areas, however,
the local authority will need to
undertake special commitments, for example, the employment of extra
staff, in order to ease those pressures on the social services
which arise from differences in language and cultural background
and to deal with problems of transition and adjustment.
Where need
can be shown, the Government propose to give such local authorities
special financial help towards expenditure incurred for these purposes.
-25CONFIDENTIAL
Voluntary Liaison Committees 63"
None of the difficulties referred to above will be resolved
without a positive effort on the part of all concerned, especially
locally in those areas where immigrants have settled in substantial
numbers;
but such effort needs to be properly directed.
The
Government are much impressed by the importance of the work being
done to this end by certain voluntary committees which provide the
necessary focal point in their areas for the co-ordination of
effort and a channel for the exchange of information, ideas and
experience.
Above all they help to create a climate of mutual
tolerance in which the stupidity of racial prejudice cannot survive.
6k.
The committees have a variety of names.
"International Friendship Councils";
Several are (tailed
other names are "Commonwealth
Citizens Consultative Committee", "Council for the Welfare of
Coloured Citizens", "Co-ordinating Committee for Work among
Commonwealth Immigrants" and so on.
For the purposes of this
White Paper they are described as voluntary liaison committees.
Regional Committees
65.
,
In some areas regional committees have been formed to co­
ordinate information, experience and ideas.
There are at present
three such regional organisations, the Immigrants Advisory Committee
set up by the London Council of Social Service for the London
Boroughs, the Commonwealth Welfare Council for the West Midlands,
and the Yorkshire Working Group on Immigrants set up under the
auspices of the Yorkshire Council of Social Service.
National Committees
66.
At the national level the Commonwealth Immigrants Advisory
Council under the chairmanship of Lady Reading was appointed by the
Home Secretary in 1962 to advise him on any matters which he,might
refer to it from time to time affecting the welfare of Commonwealth
immigrants in the United Kingdom and their integration into the
community.
On its recommendation the National Committee for
Commonwealth Immigrants was set up on 1st April 1 9 6 k . -26­
67.
The work cf the National Committee consists largely in
providing advice and
function in
information.
It also has an Important
assisting in the formation of local liaison
On the 1st April, 1 9 6 5 ,
committees and regional organisations.
the National Committee held a meeting cf representatives from
the voluntary liaison committees at which there was general
agreement on the need for the full exchange of information and
advice and of the desirability cf regular meetings of
representatives cf the liaison committees under the auspices cf
the National Committee.
Conditions forjsuccess
68.
To he successful liaison committees must satisfy three
conditions.
First, the whole enterprise must be regarded as
a joint project in which immigrant and
fully involved.
host community are both
Second, although they are essentially the
product of voluntary effort, the committees must have the full
backing of the local authorities, who snould not only support
them in principle but should also take an active part in their
work, give them adequate financial
provide somewhere for them to ineet.
help and where necessary
Third, the committees
must be non-sectarian and non-political.
They must include
representatives of, or maintain close association with, all the
main religious bodies and political parties and as many as
possible of the various local
organisations, both statutory
and voluntary.
The functions cf Voluntary Liaison Committees
69.
The work of voluntary liaison committees falls under
three main headings - information, education and welfare.
-27*
70.
Accurate information about the situation in a particular
area is necessary if effective work is
to be done.
Gircum­
stances vary from place to place and it is an essential
function cf a voluntary liaison committee to identify accurately
the main problems which exist in its ov/n area and to propose
positive measures for their solution.
71 .
Voluntary liaison committees should take steps to promote
public education.
arise from
rumour.
Many cf the social tensions which exist
ignorance and a readiness to believe unfounded
A voluntary liaison committee can provide a forum
in which people of different racial origins can meet to discuss
their difficulties and learn tc understand each
background and traditions
other ' s
and where the structure of British
society can be explained to the immigrants.
Much can be dene
by sponsoring inter-racial projects of an imaginative kind and
by encouraging immigrants tc make full
use of the vocational
and educational facilities available to them and to take a
full
72.
share in public life.
Voluntary liaison committees can also usefully help
immigrants with personal welfare problems but an important
principle to be borne in mind is
that the object should be
to help immigrants to use the ordinary facilities cf social
service provided for the whole community.
It would be a
mistake to build up any permanent form of special service
for immigrants which would encourage and perpetuate separatism.
73.
Under the Race Relations Bill, local conciliation committees
will be set up by a central Race Relations Beard to enquire
into complaints of racial discrimination.
-28­
Their functions must
however he distinguished from those of the voluntary liaison committees whose function is essentially the co-ordination cf local effort and the positive promotion of goodwill, not the of the statutory requirements of the Race implementation
Relations Bill. The future 74.
The Government recognise that local conditions
considerably and that complete rigidity
vary
of principle and
standardisation of organisation are neither possible nor
desirable.
The present system ie flexible and this flexibility
should continueo
The Government believe, however, that there
is a need for closer co-ordination
of effort
on a national
basis and in particular a need for some tangible evidence of
Government support for the existing network of voluntary
liaison committees and for the creation of additional committees
in other areas
where
substantial numbers of Commonwealth
immigrants have settled.
75.
The Government intend to establish a new National Committee
for Commonwealth Immigrants -which will be composed of
individuals who are able to bring special knowle ge and
problems arising from Commonwealth experience to hoar on the
immigration.
Its
This - 1 1 1 replace the exiatl-i - National Committee.
finances and staff
will be such that
it will be able to
expand existing services to the voluntary liaison committees
and the regional
organisations.
The need for a wider
sharing cf experience has clearly been shown and it is
important that the new National Committee should be able to
build up a comprehensive body of doctrine which can be flexibly
applied to a variety cf local situations, extend the range of
existing information work, organise conferences cf workers in
the field, arrange training
courses, stimulate research and
the examination by experts cf particular problems, and generally
promote and
co-ordinate effort on a national basis.
-29CONFIDENTIALN
76.
The Government take the view that the work of the National
Committee should not he directly under Government control since
its main stimulus must come from the harnessing cf voluntary
effort, and a degree cf autonomy is necessary if the Committee
is to remain free from party political influence and other
partisan pressures;
hut the Government propose to maintain
close liaison with the work of the Committee and to associate
itself fully with the
77*
Committee's
efforts.
The Governmeiit consider it cf tne first importance that
each voluntary liaison committee should he served by a trained,
full-time, paid official who should be the direct servant of
the committee.
As evidence cf its wish to give tangible
support to the committees, the Government is prepared, on
certain conditions, to make a grant towards the salary of such
an official available to each voluntary liaison committee
through the National Committee.
The first condition will be
that the voluntary liaison committee concerned can demonstrate
to the satisfaction of the National Committee that the person
they propose to employ is fully competent to carry out the
particular work which he or she will be called upon to perform.
Secondly, such a grant will be available where the local
authority concerned provides adequate office accommodation and
secretarial support for the official appointed.
.V'here these
conditions are satisfied, voluntary liaison committees already
employing a suitable officer will be eligible to apply for
the proposed grant.
It will be one of the functions of the
National Committee to assist in the recruitment and training
of suitable officers where they are not otherwise available
to the local committee.
-30­
78.
The Government wish to pay tribute to the valuable work
of the Commonwealth Immigrants Advisory Council since its
formation in 1962.
Its members, under the chairmanship of
Lady Reading, have devoted much time to the study of questions
affecting Commonwealth immigrants and have produced three
important reports*;
"but with the arrangements made for
co-ordinating Government activities relating to the integration
of Commonwealth immigrants (Official Report;
9th March,
columns 2^8-2Li-9), with the proposals for a new National
Committee for Commonwealth Immigrants and
increase in the last few
with the general
years of study and research into the
various problems which have
arisen, tne role of the Council
needs to he re-examined,
79.
The Government consider that the advice which the Council
has hitherto made available to the Government can in the
future be most effectively provided as part of the work of
the new National Committee and therefore intend that the
functions of
the Council should
new be included in those
of the new committee.
Conclusion
80.
The good name of Britain, our relations with other members of the Commonwealth, and, above all, justice and common humanity, demand that Commonwealth immigrants in this country should be absorbed into our community without friction and
with mutual understanding and tolerance.
The Government believe that the good sense of the British people will prevail and that this will be achieved,,
The above paragraphs outline some of the steps which the Government will take to speed the process;
they are sure that in this effort they
will be able to rely on the full co-operation of all the national organisations,
local authorities and voluntary organisations concerned and of the immigrants themselves. * Cmnd. 2119, 2266, 2458 ANNEX B DRAFT STATEMENT OF GOVERNMENT POLICY The Government have had under review the whole subject of Commonwealth immigration, including the control of entry into the United Kingdom and the integration of immigrants in this country into the community.
A White Paper covering both these aspects is being issued this afternoon. 2.
The Government have had the advantage of Lord Mountbatten's Report on his Mission to the Commonwealth countries principally concerned, and the discussions which were held with some Commonwealth Prime Ministers when they were recently in London.
We recognise the very valuable contribution that workers from other parts of the Commonwealth are making to industry and the staffing of our social services; and visitors and students from other Commonwealth countries are always welcome here.
But nearly everyone, both in this country and in the Commonwealth as a whole, appreciates that there is a limit to the number of immigrants that this small and overcrowded country can absorb.
We have come to the conclusion that new measures are necessary if that limit is not to be exceeded. 3 . The Government have decided that there must be a reduction in the rate at which vouchers are issued to enable Commonwealth citizens to come here for employment and, as from today, the rate will be reduced from 26,880 a year to 7,50i a year.
In addition, however, a temporary allocation of 1,000 vouchers a year, to be reviewed after two years, will be made available for Maltese workers in view of our special obligations to Malta.
Applications will continue to be entertained under Category B of the scheme for persons with certain special qualifications or skills, though on a more restricted basis than in the past.
The remainder of the vouchers will be available under Category A, that is for workers who, whatever their -1­
qualifications,
have s p e c i f i c
j o b s t o come t o , s u b j e c t t o a l i m i t a t i o n
of 15 p e r c e n t on t h e s h a r e of t h o s e t o b e i s s u e d t o a n y one
Commonwealth c o u n t r y .
No v o u c h e r s h a v e b e e n i s s u e d
S e p t e m b e r 1964 t o a p p l i c a n t s i n C a t e g o r y C, i . e .
since
the category
for
p e r s o n s who w i s h t o work h e r e b u t do n o t q u a l i f y u n d e r C a t e g o r i e s A
or B , and i t h a s now b e e n d e c i d e d t h a t no f u r t h e r
issued to applicants in this
4.
vouchers w i l l be
category.
We p r o p o s e no c h a n g e i n t h e p r e s e n t s t a t u t o r y r i g h t s of w i v e s and
c h i l d r e n u n d e r l b t o accompany Commonwealth i m m i g r a n t s t o , o r j o i n them
in, this
country; but,
s a v e i n e x c e p t i o n a l c i r c u m s t a n c e s , we a r e w i t h
d r a w i n g t h e p r e s e n t c o n c e s s i o n s e n a b l i n g any c h i l d a g e d 16 b u t u n d e r 18
to join a parent,
a n d a n y c h i l d u n d e r 16 t c j o i n a c l o s e r e l a t i v e
than a parent, in t h i s country.
immigration officers
eligibility,
With a v i e w t o p r e v e n t i n g
evasion,
w i l l be i n s t r u c t e d to apply s t r i c t t e s t s
and w i l l t a k e i n t o a c c o u n t w h e t h e r t h e w o u l d - b e
p r o d u c e s on a r r i v a l an
entry certificate
other
of
entrant
i s s u e d i n t h e c o u n t r y of
origin.
5-
I t has also been decided t h a t i n future
immigrants should
normally
b e e x p e c t e d t o p r o d u c e e v i d e n c e of h a v i n g u n d e r g o n e a. m e d i c a l t e s t
their
6.
that,
in
own c o u n t r i e s .
We s h a l l a l s o s e e k a w i d e r power i n t h e c o n i n g s e s s i o n t o
a t t h e d i s c r e t i o n of t h e i m m i g r a t i o n a u t h o r i t i e s ,
secure
any i m m i g r a n t ,
i n c l u d i n g d e p e n d a n t s , may b e m e d i c a l l y examined a t t h e p o r t of
entry
a n d may b e r e q u i r e d a s a c o n d i t i o n of a d m i s s i o n t o r e p o r t t o a
Medical Officer
of H e a l t h w i t h a view t o m e d i c a l t r e a t m e n t
being
arranged.
7.
I n a d d i t i o n , we s h a l l s e e k new p o w e r s t o combat e v a s i o n of
control,
i n c l u d i n g an e x t e n s i o n of t h e Home S e c r e t a r y ' s power t o
repatriate
8.
the
Commonwealth
citizens.
It is a cardinal principle
1
of t h e G o v e r n m e n t s p o l i c y on
Commonwealth i m m i g r a t i o n t h a t i m m i g r a n t s h a v e e x a c t l y t h e same r i g h t s
and r e s p o n s i b i l i t i e s a s a n y o t h e r
-2­
citizens.
9.
At t h e same t i m e i t i s o n l y h o n e s t t o r e c o g n i s e t h a t t h e
i n t h i s o o u n t r y of a n u n b e r of i m m i g r a n t s w i t h d i f f e r i n g
presence
cultural
and
s o c i a l b a c k g r o u n d s , a n d i n p a r t i c u l a r t h e i r c o n c e n t r a t i o n i n a few
a r e a s where t h e r e i s a l r e a d y a h o u s i n g s h o r t a g e a n d p r e s s u r e on t h e
s o c i a l s e r v i c e s , h a s g i v e n r i s e t o a number of d i f f i c u l t i e s .
problems are r e f e r r e d
h e a d i n g s of h o u s i n g ,
t o i n t h e White P a p e r u n d e r t h e f o u r
e d u c a t i o n , employment and h e a l t h .
The main
broad
T h e r e i s no
d r a m a t i c s h o r t - t e r m s o l u t i o n t o any of t h e m , b u t we a r e d e t e r m i n e d
to
do what we can t o s p e e d up t h e p r o c e s s e s w h e r e b y Commonwealth
i m m i g r a n t s a r e f u l l y a c c e p t e d i n t o o u r community and t h e
difficulties
10.
are
present
resolved.
We r e c o g n i s e t h a t t h e r e a r e c e r t a i n s p e c i a l p r e s s u r e s on t h e
s o c i a l s e r v i c e s i n some a r e a s n o t j u s t b e c a u s e of an i n c r e a s e
numbers b u t b e c a u s e of d i f f e r e n c e s
These s p e c i a l d i f f i c u l t i e s
staff
i n l a n g u a g e and c u l t u r a l
can r e q u i r e t h e employment of
who c a n , f o r e x a m p l e , s p e a k one or more of t h e
in
background.
additional
immigrants'
l a n g u a g e s o r who c a n do t h e e x t r a work i n v o l v e d i n p r o v i d i n g a l i n k
between t h e s c h o o l and t h e i m m i g r a n t s ' homes.
Where t h e n e e d c a n
b e shown we s h a l l b e p r e p a r e d t o g i v e f i n a n c i a l a s s i s t a n c e t o
a u t h o r i t i e s who employ s u c h
11.
local
staff.
The k e y t o r e m o v i n g s o c i a l t e n s i o n s l i e s i n a c t i o n a t t h e
l e v e l i n which t h e l o c a l a u t h o r i t y ,
local
the voluntary organisations
the immigrants themselves a r e a l l f u l l y involved.
and
The Government
h a v e b e e n much i m p r e s s e d b y t h e v a l u a b l e c o n t r i b u t i o n b e i n g made b y
v o l u n t a r y l i a i s o n committees i n c e r t a i n a r e a s .
The Government hope
t h a t s i m i l a r c o m m i t t e e s w i l l now b e s e t up i n o t h e r a r e a s w h e r e
i m m i g r a n t s h a v e s e t t l e d b u t where no c o m m i t t e e s a s y e t e x i s t . .
As
e v i d e n c e of o u r i n t e n t i o n t o e n c o u r a g e t h e s e c o m m i t t e e s i n t h e i r work
we s h a l l b e p r e p a r e d ,
on c e r t a i n c o n d i t i o n s , t o make a g r a n t
t o v o l u n t a r y l i a i s o n c o m m i t t e e s t o w a r d s t h e s a l a r y of a
full-time,
paid
official.
-3­
available
trained,
12.
W h i l e r e c o g n i s i n g t h a t l o c a l c o n d i t i o n s v a r y , t h e Government
c o n s i d e r t h a t t h e r e i s a l s o a n e e d f o r c l o s e r c o - o r d i n a t i o n of
on a n a t i o n a l b a s i s .
effort
To t h i s end we p r o p o s e t o e s t a b l i s h a new
N a t i o n a l Committee f o r Commonwealth I m m i g r a n t s w h i c h w i l l r e p l a c e
e x i s t i n g N a t i o n a l Committee and w h i c h w i l l b e composed of
the
individuals
who a r e a b l e t o b r i n g s p e c i a l knowledge and e x p e r i e n c e t o b e a r on t h e
p r o b l e m s a r i s i n g from Commonwealth i m m i g r a t i o n .
I t w i l l be
f u n c t i o n of t h e new c o m m i t t e e t o c o - o r d i n a t e t h e work of
the
voluntary
l a i s i o n c o m m i t t e e s , to. e x t e n d t h e r a n g e of e x i s t i n g i n f o r m a t i o n w o r k ,
to organise conferences,
arrange training courses, stimulate
research
a n d t h e e x a m i n a t i o n b y e x p e r t s of p a r t i c u l a r p r o b l e m s and g e n e r a l l y
t o promote and c o - o r d i n a t e e f f o r t
13.
on a n a t i o n a l b a s i s .
The Government w i s h t o p a y t r i b u t e t o t h e v a l u a b l e work of
the
Commonwealth I m m i g r a n t s A d v i s o r y C o u n c i l u n d e r t h e c h a i r m a n s h i p of
Lady R e a d i n g .
We h a v e , h o w e v e r , d e c i d e d t h a t t h e a d v i c e w h i c h t h e
C o u n c i l h a s h i t h e r t o made a v a i l a b l e t o t h e Government can i n f u t u r e
be
m o s t e f f e c t i v e l y p r o v i d e d a s p a r t of t h e work of t h e new N a t i o n a l
Committee.
We t h e r e f o r e
intend t h a t the functions
of t h e
Council
s h o u l d now b e i n c l u d e d i n t h o s e of t h e new c o m m i t t e e .
1A-
The Government a r e d e t e r m i n e d t o e n s u r e t h a t
Commonwealth
i m m i g r a n t s a r e a b s o r b e d i n t o our community w i t h o u t f r i c t i o n
w i t h mutual u n d e r s t a n d i n g and t o l e r a n c e .
and
We b e l i e v e t h a t we s h a l l
b e f u l l y s u p p o r t e d b y p u b l i c o p i n i o n and can r e l y on t h e
full
c o - o p e r a t i o n of a l l t h e n a t i o n a l o r g a n i s a t i o n s , l o c a l a u t h o r i t i e s
v o l u n t a r y o r g a n i s a t i o n s c o n c e r n e d a n d of t h e i m m i g r a n t s
-4­
and
themselves.