LABOUR AND THE CONSTITUTION. 469 
Bach group would be in a better position to appreciate the difficulties of 
the others, and this appreciation should have a marked effect on indus- 
trial peace and development. Nor would the educative value of’ the 
Council be limited to the interaction of group on group, for within each 
group the members would gain much from each other by the exchange 
of ideas. All over India we found experiments the knowledge of which 
had not penetrated beyond their original home. A conference would 
provide an opportunity for the interchange of information on all such 
developments. Further, the pooling of the representatives’ experience 
and ideas would be the best contribution that could be made towards the 
formation of a sane and constructive policy in labour matters. The 
formation of sound policy depends on contact with men rather than with 
letters or files, on the presentation and criticism of ideas face to face, 
and on an intimacy with the position of others which the written word 
seldom conveys. 
Rule-making Powers. 
There is a third important function which could be fulfilled by a 
Council of this kind. In much modern legislation, it is necessary for the 
legislature to leave to another authority the working out of details. 
This power to legislate in detail is usually delegated to the executive 
Government, and although the growth of such delegated powers is by no 
means as extensive in India as in England, most labour Acts confer 
wide powers on the central or provincial Governments or. both. 
Rules made under the Factories Act and the Mines Act regulate matters 
of great importance to employers and labour, and the Workmen's Com- 
pensation Act not merely leaves most of the Commissioners’ procedure 
and other matters of moment to rules, but confers on the Government 
of India power to schedule fresh industrial diseases and even to extend 
the Act to fresh classes of workmen. The Trade Unions Act and the 
Trade Disputes Act and, indeed, all but the most unimportant Acts are 
completed by rules which, though usually published for criticism before 
final promulgation, lie solely within the authority of the executive. We 
consider that a Council of the kind we have been discussing would be 
admirably equipped to advise on the framing of rules and regulations 
which are intended to be of general application. So far as provincial 
or local rules are concerned, the need of greater uniformity has been 
stressed in some quarters, and on more than one occasion the Govern- 
ment of India have assisted provincial Governments and encouraged 
the adoption of common standards by preparing and circulating drafts. 
By advising provincial Governments, the Council should be able to further 
she framing of sound rules and the avoidance of variations which are not 
warranted by local conditions. 
Economic Research. 
The Council might also play a useful part in the co-ordination 
and development of economic research. The need for advance in this 
Jirection has already been discussed and a Council constituted on the 
lines suggested would be able to assist and guide efforts in the various 
provinces. We recognise the difficulty of finding funds for much