(THIS D O C U M E N T I S T H E P R O P E R T Y
OF HER BRITANNIC MAJESTY*S
C. (65) 77
18th M a y ,
GOVERNMENT)
COPY
NO
1965
CABINET
RACE RELATIONS BILL - CONCILIATION
MACHINERY
M e m o r a n d u m b y t h e S e c r e t a r y of S t a t e f o r
Home
the
Department
C l a u s e 1 of t h e R a c e R e l a t i o n s B i l l a.s i t s t a n d s m a k e s i t a
c r i m i n a l offence, p u n i s h a b l e on s u m m a r y conviction by a fine, t o
p r a c t i s e d i s c r i m i n a t i o n o n g r o u n d s of c o l o x i r , r a c e o r e t h n i c o r
n a t i o n a l o r i g i n s i n a n y of t h e p l a c e s of p u b l i c r e s o r t d e s c r i b e d i n t h e
section."
T h i s p r o v i s i o n h a s b e e n a t t a c k e d by the O p p o s i t i o n , and
widely in the p r e s s , on the g r o u n d s that it i n t r o d u c e s c r i m i n a l s a n c t i o n s
into a field m o r e a p p r o p r i a t e to conciliation.
T h e r e is also a
c o n s i d e r a b l e b o d y of o p i n i o n a m o n g G o v e r n m e n t s u p p o r t e r s a n d t h e
o r g a n i s a t i o n s r e p r e s e n t i n g i m m i g r a n t c o m m u n i t i e s t h a t s o m e f o r m of
conciliation m a c h i n e r y should be introduced as a p r e l i m i n a r y to any
proceedings in the courts.
In t h e d e b a t e on Second R e a d i n g on 3rd M a y I u n d e r t o o k that we
s h o u l d l i s t e n c l o s e l y t o t h e a r g u m e n t s a d v a n c e d i n f a v o u r of a
c o n c i l i a t i o n p r o c e s s a n d t h a t , if w e c o n s i d e r e d i t p r a c t i c a b l e a n d i n t h e
public interest to do so, we should a m e n d the Bill at C o m m i t t e e Stage
t o g i v e s u c h e f f e c t a s w e f e l t a b l e t o t h e w i s h e s of t h e H o u s e .
The
s u b s e q u e n t d e b a t e s e r v e d t o c o n f i r m t h e g e n e r a l f e e l i n g i n f a v o u r of
conciliation m a c h i n e r y , with a p r e f e r e n c e that any proceedings that
m i g h t f o l l o w f a i l u r e of c o n c i l i a t i o n s h o u l d b e of a c i v i l r a t h e r t h a n a
criminal nature.
The draft amendments
annexed to this m e m o r a n d u m provide
t h e e s t a b l i s h m e n t of c o n c i l i a t i o n m a c h i n e r y a n d f o r
proceedings when conciliation has
enforcement by
for
civil
failed.
T h e p r o p o s e d n e w c l a u s e A p r o v i d e s f o r t h e c o n s t i t u t i o n of a
Race Relations Board,
which will be r e q u i r e d to appoint
conciliation committees.
local
It w i l l b e t h e d u t y of t h e c o m m i t t e e s
to
r e c e i v e a n d e n q u i r e i n t o i n d i v i d u a l c o m p l a i n t s of d i s c r i m i n a t i o n
in
p u b l i c p l a c e s w i t h i n t h e a m b i t of C l a u s e
t o s e c u r e a s e t t l e m e n t of t h e d i f f e r e n c e s
appropriate,
tory acts.
1 of t h e B i l l ,
and to
attempt
between parties and,
t o o b t a i n a s s u r a n c e s a g a i n s t a n y r e p e t i t i o n of
where
discrimina­
The c o m m i t t e e s will w o r k informally and will not be
with p o w e r s to s u m m o n w i t n e s s e s .
In any c a s e in which
conciliation
fails the c o m m i t t e e will be r e q u i r e d to m a k e a report to the
a n d if i n s u c h a c a s e t h e B o a r d i s s a t i s f i e d t h a t a c o u r s e
discriminatory
Board;
of
conduct h a s taken p l a c e and that such conduct is
t o c o n t i n u e it w i l l b e a b l e to t a k e p r o c e e d i n g s for
-1­
armed
enforcement.
likely
Court proceedings a r e dealt with.in the proposed new
C l a u s e B.
P r o c e e d i n g s will b e t a k e n in the county court or High Court,
which will be e m p o w e r e d to grant an injunction r e s t r a i n i n g the
d e f e n d a n t , o n p a i n of c o m m i t t a l f o r c o n t e m p t of c o u r t , f r o m a n y f u r t h e r
a c t s of d i s c r i m i n a t i o n e i t h e r a g a i n s t s p e c i f i e d i n d i v i d u a l s o r a g a i n s t
s p e c i f i e d c l a s s e s of p e r s o n s .
I w o u l d e x p e c t v e r y f e w c a s e s in p r a c t i c e
to r e a c h the courts.
Clause A h a s been drafted so a s to leave the B o a r d with
c o n s i d e r a b l e latitude in d e c i d i n g the n u m b e r , d i s t r i b u t i o n and c o m p o s i t i o n
of c o n c i l i a t i o n c o m m i t t e e s .
If, a s I p r o p o s e , t h e B o a r d i s i t s e l f t o b e
r e s p o n s i b l e f o r e n f o r c e m e n t it o u g h t n o t i n a n y c a s e t o b e d i r e c t l y
responsible for conciliation.
This m e a n s that there m u s t be
conciliation committees covering the whole country.
While
conciliation by people f a m i l i a r with the local situation will b e
d e s i r a b l e w h e r e v e r p o s s i b l e , i t m a y b e f o u n d b e s t i n s o m e p a r t s of
the country to have a single c o m m i t t e e serving a comparatively large
a r e a in w h i c h f e w c a s e s a r e likely t o a r i s e .
T h e s e p a r a t i o n of t h e
p r o c e s s e s of c o n c i l i a t i o n a n d e n f o r c e m e n t w i l l a l s o b e e f f e c t e d b y t h e
p r o v i s i o n i n c l a u s e 3 t h a t a n y s t a t e m e n t m a d e d u r i n g t h e c o u r s e of
conciliation shall not be admitted in court proceedings
except with the
c o n s e n t of t h e p a r t y b y w h o m i t w a s m a d e .
It i s a p p a r e n t f r o m t h e d e b a t e on t h e S e c o n d R e a d i n g , a n d f r o m
a m e n d m e n t s which have already been tabled, that there will be strong
p r e s s u r e d u r i n g the C o m m i t t e e stage for the Bill to be extended to deal
w i t h d i s c r i m i n a t i o n in s u c h w i d e r f i e l d s a s e m p l o y m e n t a n d h o u s i n g .
It w i l l b e u r g e d t h a t t h e s e a r e t h e f i e l d s w h e r e t h e w o r s t a b u s e s o c c u r
a n d w h e r e a t t e m p t s a t c o n c i l i a t i o n b y l o c a l c o m m i t t e e s of t h e k i n d w e
propose to set up would be particularly effective.
I assume however
t h a t i t w i l l s t i l l b e t h e w i s h of m y c o l l e a g u e s t h a t t h i s p r e s s u r e s h o u l d
be resisted.
It i s o n l y a f t e r t h e m o s t c a r e f u l c o n s i d e r a t i o n a n d c o n s u l t a t i o n
with m y colleagues principally c o n c e r n e d that I have decided in favour
of e n f o r c e m e n t b y c i v i l r a t h e r t h a n c r i m i n a l p r o c e e d i n g s .
An a r r a n g e ­
m e n t w h e r e b y c r i m i n a l p r o c e e d i n g s would b e t a k e n in the m a g i s t r a t e s
c o u r t s , with offences p u n i s h a b l e b y f i n e s a s in t h e p r e s e n t c l a u s e 1, h a s
some attraction.
But conciliation and criminal proceedings are
difficult to r e c o n c i l e in p r i n c i p l e and t h e r e a r e s e r i o u s p r o c e d u r a l
d i f f i c u l t i e s i n a t t e m p t i n g t o c o m b i n e t h e m . O n e of t h e a d v a n t a g e s of
proceeding
by civil action will be to f r e e the police f r o m all
r e s p o n s i b i l i t i e s in the m a t t e r .
I understand that the Secretary
of S t a t e f o r S c o t l a n d
supports
t h e s e p r o p o s a l s a n d w o u l d l i k e t h e s c o p e of t h e p r o p o s e d R a c e
B o a r d to extend to Scotland.
It w o u l d a c c o r d b e t t e r v/ith t h e
Relations
Scottish
s y s t e m of l a w e n f o r c e m e n t f o r p r o c e e d i n g s i n S c o t l a n d t o b e t a k e n
t h e L o r d A d v o c a t e i n s t e a d of b y t h e B o a r d ,
provides for
this.
I s e e k t h e a p p r o v a l of m y c o l l e a g u e s t o t h e t a b l i n g c f t h e
C o m m i t t e e s t a g e o f t h e R a c e R e l a t i o n s B i l l of a m e n d m e n t s g i v i n g
effect t o t h e s e p r o p o s a l s .
H o m e Office,
18th M a y ,
S. W . 1.
1965
-2-
CONFIDEWT1AL
by
and the draft new clause
C
CONFIDENTIAL
Race Relations Bill
DRAFT
AMENDMENTS
Clause 1, p a g e 1, line 5, leave o u t from beginning to " being "
i n line 6 a n d insert " it shall b e unlawful for a n y p e r s o n " .
Clause 1, p a g e 1, line 7, leave o u t " he discriminates " a n d
insert " to practise discrimination " .
Clause 1, p a g e 1, line 9, leave o u t " any p e r s o n " a n d insert
' ' persons " .
Clause 1, p a g e 2, line 7, leave o u t subsection (4) a n d insert—
(4) T h e provisions o f this section m a y b e enforced by civi*
proceedings u n d e r the following provisions of this A c t a n d n o t
o t h e r w i s e : b u t n o t h i n g in this subsection affects the enforcement
by civil or criminal proceedings of any d u t y or obligation to
which a p e r s o n is subject otherwise t h a n by virtue of this section.
T o m o v e the following C l a u s e s : —
A.—(1) F o r t h e p u r p o s e s of securing c o m p l i a n c e with the
provisions of section 1 o f this Act a n d the resolution of difficulties
arising o u t of those provisions, there shall be constituted a
b o a r d to be k n o w n as the R a c e Relations B o a r d , consisting of
three m e m b e r s of w h o m o n e , being a barrister, [advocate] or
solicitor, shall b e a p p o i n t e d by the L o r d Chancellor a n d the
others b y the Secretary of State.
^f j-^
B j
conciliation
committees,
a
0 a r c
(2) T h e B o a r d shall a p p o i n t c o m m i t t e e s , t o be k n o w n as local
conciliation c o m m i t t e e s , for such areas as the B o a r d consider
necessary for t h e p u r p o s e s of this section; a n d it shall b e t h e
d u t y of every such c o m m i t t e e —
(a) to receive a n d consider a n y c o m p l a i n t of discrimination
in c o n t r a v e n t i o n of section 1 of this A c t w h i c h m a y b e
m a d e t o t h e m (or m a d e to the B o a r d a n d referred b y
t h e B o a r d to t h e m ) , being a c o m p l a i n t m a d e b y or w i t h
the a u t h o r i t y of t h e p e r s o n against w h o m t h e discrimin­
a t i o n is alleged to have b e e n p r a c t i s e d ; (b) to m a k e such inquiries as they t h i n k necessary w i t h respect to the facts alleged in any such c o m p l a i n t ; a n d (c) w h e r e a p p r o p r i a t e , to use their best e n d e a v o u r s by
c o m m u n i c a t i o n w i t h t h e parties c o n c e r n e d or otherwise
t o secure a settlement of any difference between t h e m
a n d a satisfactory assurance against further discrimin­
a t i o n c o n t r a r y to t h e said section 1 by t h e p a r t y against
w h o m the c o m p l a i n t is m a d e . 172-3
43/1
a n a
(3) I n a n y case where the local conciliation c o m m i t t e e are
u n a b l e to secure such a settlement, or such a settlement a n d
assurance, as aforesaid, or it a p p e a r s t o the committee t h a t any
such a s s u r a n c e is n o t being complied with, the committee shall
m a k e a r e p o r t t o t h a t effect to the R a c e Relations B o a r d ; a n d
if it a p p e a r s to the B o a r d , in consequence of such r e p o r t s ­
fa) t h a t t h e r e h a s t a k e n place in a n y place of public resort to w h i c h the said section 1 applies a course of c o n d u c t in c o n t r a v e n t i o n of t h a t section; a n d (b) t h a t t h a t c o n d u c t is likely t o c o n t i n u e ,
the B o a r d m a y t a k e proceedings u n d e r section B of this A c t or,
if t h a t place is in Scotland, report the m a t t e r t o the Lord A d v o c a t e .
(4) T h e p r o v i s i o n s of the Schedule t o this A c t shall h a v e effect
with respect t o the t e n u r e of office a n d r e m u n e r a t i o n of m e m b e r s
of t h e B o a r d , t h e a p p o i n t m e n t a n d r e m u n e r a t i o n of their officers
a n d servants, t h e p a y m e n t of travelling a n d other allowances to
m e m b e r s of local conciliation c o m m i t t e e s , a n d other ancillary
m a t t e r s ; a n d any expenditure incurred u n d e r those provisions
shall be defrayed o u t of moneys p r o v i d e d by Parliament.
(5) T h e local conciliation c o m m i t t e e s shall m a k e to t h e B o a r d
such periodical reports with respect t o the exercise of their func­
tions as t h e B o a r d m a y require, a n d the B o a r d , shall, at such
times as t h e Secretary of State m a y direct, m a k e a n n u a l r e p o r t s
to the Secretary of State with respect to the exercise of their func­
t i o n s ; a n d t h e Secretary of State shall lay before P a r l i a m e n t
a n y report m a d e to h i m u n d e r this subsection.
B.—(1) Civil proceedings for the enforcement of section 1 of Proceedings for
this A c t by injunction or other a p p r o p r i a t e relief may b e b r o u g h t enforcement of
in E n g l a n d a n d Wales by the R a c e Relations B o a r d ; a n d n o t w i t h s t a n d i n g a n y t h i n g t o the c o n t r a r y in any e n a c t m e n t or rule
of law relating to t h e jurisdiction of c o u n t y courts, such p r o c e e d ­
ings m a y b e b r o u g h t in a c o u n t y c o u r t .
s e c t l o n
(2) If in proceedings u n d e r this section the court is satisfied—
(a) t h a t t h e defendant h a s (by himself or by his servants o r agents) engaged in c o n n e c t i o n w i t h a place of p u b l i c r e s o r t to which section 1 of this A c t applies in a c o u r s e of c o n d u c t in c o n t r a v e n t i o n of t h a t section; a n d (b) t h a t h e is likely, unless restrained b y order of t h e c o u r t ,
t o persist in such c o n d u c t ,
t h e c o u r t m a y g r a n t such injunction as a p p e a r s to t h e c o u r t t o
b e p r o p e r in all t h e circumstances, a n d in particular a n injunction
t o r e s t r a i n t h e defendant from c o m m i t t i n g o r causing o r p e r m i t t i n g
acts of discrimination in c o n t r a v e n t i o n of the said section 1
of such k i n d s , against such p e r s o n s or against p e r s o n s of such
descriptions, as m a y b e specified in t h e order of the c o u r t .
(3) I n proceedings u n d e r this section, evidence of a n y c o m ­
m u n i c a t i o n m a d e to t h e R a c e R e l a t i o n s B o a r d , a local conciliation
c o m m i t t e e , or any officer of t h e B o a r d o r of s u c h a c o m m i t t e e ,
for t h e p u r p o s e of o r in c o n n e c t i o n with the exercise of their
functions u n d e r section A of this Act shall n o t be a d m i t t e d
except with t h e c o n s e n t of t h e p a r t y b y w h o m it was m a d e .
C.—(1) Civil proceedings for the enforcement of section 1 of Proceedings for
this A c t in S c o t l a n d m a y b e b r o u g h t by the L o r d A d v o c a t e in enforcement of
[the O u t e r H o u s e of] the C o u r t of Session, or in the sheriff c o u r t . Scotland
(2) Proceedings u n d e r this section shall b e b y petition, a n d if
in a n y such p r o c e e d i n g s the c o u r t is satisfied—
(a) t h a t t h e r e s p o n d e n t h a s (by himself or b y his servants o r agents) engaged in c o n n e c t i o n with a place of public resort to w h i c h section 1 of this Act applies in a c o u r s e of c o n d u c t in c o n t r a v e n t i o n of t h a t section; a n d (b) t h a t h e is likely, unless prohibited by o r d e r of the c o u r t ,
to persist in such c o n d u c t ,
t h e c o u r t m a y m a k e a n o r d e r p r o h i b i t i n g him f r o m c o m m i t t i n g or
c a u s i n g or p e r m i t t i n g acts of discrimination in c o n t r a v e n t i o n of
t h e said section 1 of s u c h k i n d s , against such p e r s o n s or against
p e r s o n s of such description, as m a y be specified in the order.
(3) A n a p p e a l shall lie a g a i n s t —
(a) a n o r d e r m a d e u n d e r the last preceding s u b s e c t i o n ;
(b) a n o r d e r i m p o s i n g a fine o n the r e s p o n d e n t , or c o m m i t t i n g h i m t o p r i s o n , in respect of a b r e a c h of a n o r d e r m a d e as a f o r e s a i d ; as if the o r d e r a p p e a l e d a g a i n s t were a final i n t e r l o c u t o r i n a n
o r d i n a r y a c t i o n ; [and w h e r e any a p p e a l u n d e r this subsection is
decided by t h e C o u r t of Session a further a p p e a l shall lie t o the
H o u s e of L o r d s w i t h the leave of t h e C o u r t o r of t h a t H o u s e ] .
(4) Subsection (3) of t h e last preceding section shall apply in
t h e case of p r o c e e d i n g s u n d e r this section as it applies [in the case
of proceedings u n d e r t h a t section.
SCHEDULE
ANCILLARY PROVISIONS AS TO RACE RELATIONS BOARD AND
CONCILIATION COMMITTEES
LOCAL
1. The Secretary of State may appoint one member of the Race
Relations Board as chairman.
2. A person appointed to be a member of the Board shall hold and
vacate office under the terms of the instrument by which he is
appointed, but may at any time resign his office; and a member who
ceases to hold office shall be eligible for re-appointment.
3. The Board shall be a body corporate with perpetual succession
and a common seal.
4. The validity of any proceeding of the Board shall not be affected
by any vacancy among the members or by any defect in the appointment
of a member.
5. The Board may appoint such officers and servants as they may,
after consultation with the Secretary of State and with the consent
of the Treasury, determine.
6. There shall be paid—
(a) to the members of the Board such remuneration and
allowances as may be determined by the Secretary of State
with the consent of the Treasury;
(b) to the officers and servants of the Board such remuneration
and allowances as the Board may, after consultation with
the Secretary of State and with the consent of the Treasury,
determine.
7. The Board may pay—
(a) to members of local conciliation committees;
(b) to persons assisting in or concerned with the carrying out of
the functions of any such committee,
travelling or other allowances in accordance any such scales as
may be approved by the Secretary of State with the consent of the
Treasury.
CONFIDENTIAL
Race Relations Bill
DRAFT AMENDMENTS
CXIV—A (3)
Wh May,
172-3
(37284)
1965
43/1