4 
CHAPTER XXI, 
however, are exceptional and require special treatment. This is all 
the more necessary in view of the extent to which the free movement 
of labour to that province has been, and continues to be, adversely 
affected by objections to free recruitment made from the United Pro- 
vinces on one side to Madras on the other. The association of repre- 
sentatives of labour with the organisations of employers in the establish- 
ment of suitable machinery for dealing with questions of wages would 
create confidence as well as make it difficult for any employer to pay 
his workers less than the rates generally ruling in his district. 
These are the special considerations which have led me to 
believe that, in all the circumstances, the establishment of wage-fixing 
machinery in Assam is desirable in the interests of employers and em- 
ployed alike. The existence of an Association representing 90% of 
the acreage under tea should make complete organisation possible on the 
amployers’ side. The absence of any organisation which can represent 
the interests of the workers, on the other hand, is a serious difficulty which 
will require special consideration. Apart from variations in the nature 
of the soil and in the work and yields on different estates, there are other 
circumstances peculiar to Assam which necessitate careful investiga- 
tion. These include the part-time nature of the employment in most 
areas, the recognition of absenteeism to provide spare time for those 
who have rice lands or other subsidiary occupations to attend to and 
generally the advisability of allowing as great a measure of freedom as 
possible to the different classes of workers. The differences in the nature 
and cash value of concessions and allowances given to workers and the 
maintenance of registers to show actual working hours and earnings of 
individual workers will add to the difficulties of enforcement and admi- 
pistration. All these factors indicate that careful previous enquiries 
are necessary before it can be decided that the establishment of statutory 
wage-fixing machinery is practicable in the tea plantations of Assam. 
I am of the opinion that full advantage should be taken of the 
high degree of organisation and experience of the Indian Tea Association 
and of the Assam Branches and District Committees. They should be 
invited to consider the extent to which machinery of the type suggested is 
practicable and can be made effective. If possible, they should prepare 
a scheme under which representatives of the workers can be associated 
with the representatives of employers. Full representation of all in- 
terests concerned is desirable and, as in Ceylon, it may be found neces- 
sary to make statutory provision for effective enforcement and for the 
inclusion of an independent element by the appointment of suitable 
Government officials. The practice in Ceylon, where the system of 
separate District Boards is in force, points to the advisability of utilis- 
ing the experience of existing organisations in Assam in the shape of 
District Committees. Questions regarding the most suitable type of 
machinery and the most likely methods of enforcement and adminis- 
tration are matters which can safely be left to Government and the in- 
dustry for consideration.