372 CHAPTER XX.
means to return after a limited period, the dangers of uncontrolled recruit-
ing will be enormously reduced, and if, as we hope, a stage is reached when
there will be more persons offering themselves at the depdts than can be
accepted, the necessity for control should disappear entirely. We re-
commend, therefore, that in.the areas not inhabited by aboriginals the
Government of India, in consultation with the provincial Governments
and the industry, should consider whether the time has not already arrived
for dispensing with restrictions over forwarding. If they reach the con-
clusion that this is not yet possible, the control maintained should be of the
character we have recommended. Similar control should also be main-
tained in the aboriginal areas, but the position in all controlled areas
should be reviewed after the expiry of five years.
Power to Re-introduce Control.

We now proceed to outline the wider powers which the new Act
should confer on Government as safeguards in the event of the recrudes-
sence of abuses. Briefly, these should make it possible to re-introduce the
system at present in operation with certain modifications. As has been
already stated, it is not necessary that power should be retained to pro-
hibit recruitment absolutely, but we recommend that the measure should
be so framed as to enable Government to re-introduce in any area the
prohibition of recruitment otherwise than by means of licensed garden
sardars and licensed recruiters. In effect, this would enable Government,
if satisfied that such an extreme step was necessary, to prohibit recruit-
ment in any particular area except by garden sardars, for they would be
in a position to withhold licenses from other recruiters. We hope
that it will nowhere be necessary to re-impose restrictions on actual
recruitment, but, if this necessity should arise, it would ordinarily be
unwise to refuse licences to respectable and reliable recruiters re-
sident within the recruiting districts. More effective control can be
exercised by local authorities over persons of this character than over
garden sardars, who may be back in Assam before their irregularities come
50 light. Further, the aim everywhere must be to reach the position when
recruits come to the depot without the intervention of an intermediary,
and this implies that either the agent in charge of the depdt or some
dther agent of the employer there must have permission to engage the
amigrant.

Definition of Assisted Emigration.

The new law should be limited to the control of assisted emigra-
bion and, in respect of the definition of both “assistance ’and emigrant ”’,
there should be modifications of the present system. First, © emigrant ”’
should be so defined as to exclude any person who has been employed
within the preceding twelve months in any capacity in Assam. It is
entirely wrong to treat the tea garden labourer who wishes to return to
Assam after visiting his own country as a new recruit, as the present law
requires. Provision will probably be necessary for the grant of certifi
cates by employers to labourers intending to return. Secondly, under
the new law it should not be possible to place restrictions on mere