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CHAPTER XVIII, 
is a strong tendency for the intermediary, who is responsible for trans- 
mitting both orders and complaints, to colour them in the process from 
his own particular point of view. The result in many factories is that 
the worker feels that it is useless for him to appeal to any authority higher 
than the man immediately above him. This is especially true where the 
management is imperfectly acquainted with the language of the men; 
in many factories the sardar or mukaddam owes much of his power to 
the fact that no onc above him speaks fluently the tongue common to him 
and the men under him. In all cases, it is of primary importance that 
those responsible for management should be both able and eager to secure 
contact as direct as possible between themselves and the humblest of 
their emplovees. 
Means of Establishing Contact. 
In considering, therefore, what can be done to prevent mis- 
understanding and disputes, it is necessary to begin with the individual 
industrial establishment. No machinery of a more comprehensive or 
external character can hope to repair the loss which arises from the ab- 
sence of a proper understanding within the factory or mine. It is conse- 
quently important that, where the scale of an establishment does not 
permit of detailed labour administration by its head in person, some 
method should be devised to meet the needs of the case. There are three 
possible lines, by mo means mutually exclusive, which suggest themselves 
in this connection. With two of these we have already dealt. The 
development of stable trade unions, with access to those responsible for 
the management is the most obvious need. But this development is 
not likely to be rapid, and while the employer can do something to en- 
courage it, his powers are limited. The second method is the appoint- 
ment, of labour officers. The functions of such officers have been dis- 
cussed in our review of conditions in factories and have heen referred to 
again in connection with mines, and it is unnecessary to repeat them 
hare 
Formation of Works Committees. 
The third possible method is the formation of works committees. 
The comparatively small measure of success achieved by the experiments 
in this direction has raised doubts regarding the suitability of works 
committees to Indian conditions. In the minds of many employers there 
is the belief that works committees will provide a substitute for trade 
anions, while these are regarded by trade union leaders as rival institu- 
tions deserving of no encouragement. We believe that, if they are given 
proper encouragement and past errors are avoided, works commit- 
bees can play a useful part in the Indian industrial system. The 
defective education of the Indian worker puts a handicap on these 
committees which is not present in the West. We have referred to 
the works committees in operation in two mills in Madras, and in the 
chapter on railways we have dealt at length with this subject. What 
needs emphasis here is that, where there is a trade union, the em- 
ployer should seek its collaboration and co-operation in the estab- 
lishment and working of these committees. which should not be regarded