Labour Problems

Another Unrealistic Attack On Ng’S Native

New Ordinance Published—To Operate From Beginning Of Year

From 1? W Robson

From R. W. Robson

Port Moresby, Oct. 7.

THE big event of the week here has been the distribution to all concerned of copies of the new Native Labour Ordinance, with which it is proposed to replace, as from January 1, the fantastic conglomeration of Wardist Socialism and New Planners’ idealism which was brought in as an Ordinance to control native labour some three or four years ago.

The new Ordinance is an improvement on the old—the direct result, of course, of the change of government in Australia — but, compared with the conditions which ruled before World War 11, it is still in the Category of so many things here to-day.

That is to say, it is merely another facet of the New Planners’ attempt to rule a raw country and a very primitive race hvith instrumentalities which would be more fittingly applied to a European com munity.

The new Government in Australia .loins with all practical men in deploring the things that Wardism did to these Terri tories, and is trying to introduce reforms.

But the Australian Socialists —as they themselves gleefully expressed it —proceeded in their years of office on the principle that if any anti-Socialist Gov ernment followed them, it would find it exceedingly difficult to “unscramble the eggs.” The eggs have been well and truly scrambled in Papua-New Guinea and the Australian Government now is up against the double handicap—the implan tation throughout the services of a good sprinkling of Socialists, near-Socialists and idealistic rat-bags, and the indoc trination of the child-like natives with ideas that are in line with Socialist theory, and will take some rooting-out.

THERE were penal sanctions in the old labour system. Wardism more or less wiped them out. Even to-day. un der the Spender regime, officialdom writhes in agony at the very idea of punishing natives with calaboose for breaches of labour contracts.

Perhaps I belong to grandfather’s day: but, since seeing this country after its five years’ dose of Wardism, I am more firmly convinced than ever that you can have no well-controlled and efficient labour service here unless you can find a way of nunishing these lads for labour breaches, either through their stomachs or their hides. The new ordin ance’s provision for punishment is fatal to the whole thing.

The new Ordinance is clearly the pro duct of the present Administrator’s theory that the only way to govern the Melan esian is to treat him as Nature’s gentle man. So the whole plan is based now on a civil contract between employer and em ployed. There are all sorts of admoni tions to DO’s and others to try and make the native realise his obligations under the contract. If he is a naughty native and defies his employer, he is to have some part of his pay withheld, and may even be sent home, at the Administration’s expense.

To any experienced employer here, this is simply silly.

Fundamentally, there is no reason at all why these primitive folk should work at all for Europeans—they can, and mostly do, live adequately, according to their ideas, without organised toil, just as they did before the advent of Europeans. Those

who now hire themselves out, to labour for wages, do so either because they like Euro pean foods and gee-gaws, or because, like the Highlanders, they want to see the strange things of the salt-water country.

But the natives have little regard for money, in the European way. To you and me, a fine is a matter for regret and bitter cursing. To the Papuan, it means very little. Certainly, it does not repre sent punishment.

Yes —I can hear the clamour of the New Planners’ argument! Since these

people are free, what right have we to force them into employment, and to punish them for breaches of their en gagement, and make labour slaves of them? We have heard it all, many times —ever since Evatt and Ward lifted their anti-capitalist howl against the old inden ture system.

THE answer is simple, and its logic in escapeable. New Guinea must be held and developed by Australia, for defence reasons. If New Guinea is not held in this way, it inevitably will be oc cupied by Asiatics who will completely en slave these natives.

Development means that we must have here an adequate labour force. If we can not use the indigenous natives, we must bring in foreign labourers—probably Asiatics—and that would be a very bad thing.

Whether we—and they—like it or not,

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the international (or inter-racial) situa tion demands that these Papuan-Melan esians shall give their labour in the development and defence of their country. ,Their halcyon days of freedom-in ’ savagery are over.

The New Planners, with manifest reluc tance, have accepted this viewpoint, in some degree—one can see signs of it in this new Ordinance. But they cling stub bornly to the idea of treating this primi tive bush Kanaka as if he were a literate European, and the whole Ordinance is based on their rejection of the “indenture system” supported by adequate penal pro visions, and their stubborn insistence on the substitution therefor of the ordinary civil contract, guarded by monetary penalties.

It won’t work. If there are to be real progress and development in New Guinea —on a sound economic basis—this Ordin ance will have to be revised drastically fairly soon, or scrapped altogether. It only becomes possible now because more than half the basis of this country’s economy to-day is unsound —it is built, not on the country’s earnings, but on the lavish expenditure within the country of outside money—millions from Canberra, plus other millions from the ever-hope ful oil companies.

If oil is not found, this present struc ture surely will crash. The country then will have to pay its way mostly out of its own resources. Private employers will then be in a position to insist on an ade quate and efficient labour force—and this elaborate and unrealistic Ordinance will be “wiped.”

THE principal changes, from the non official viewpoint, are the extension of the term of contract to 18 months, with another 6 months possible; the com plete change-over to civil law; and the wiping-out of the Department of Native Labour, so that the implementation of the Ordinance becomes the responsibility of the District Services and the Govern ment Secretary.

District Officers will attend to pretty well everything connected with native labour; but inspections will be carried out by officials attached to the Government Secretary’s Department.

The change-over to the District Officers will be welcomed generally. Everyone agrees that the best and most hopeful thing in Papua-New Guinea to-day is the good relationship between the men in the field—the DO’s and ADO’S—and the non official classes.

The DO’s mostly are men of long and sound experience, realistic and reasonable, who have done a great deal to take the bad taste of Canberra and Port Moresby out of the mouths of the private em ployers, If anyone can make this Ordin ance work, they will. Because they are out in the field every day, they are under no delusions about native labourers and the problems they represent. They also know the bad, as well as the good qualities of private employers.

THE following summary of other points has been prepared by officials in Port Moresby:— Under this proposed Ordinance there are two classes of workers, “employees” and “casual workers.” The former are natives employed under Agreement, the latter are those who prefer to work under a verbal arrangement.

Penal sanctions in respect of breaches °L . Agreements by either party are abolished and civil remedies substituted therefor.

Complaints in relation to such breaches

will be heard and determined by a Dis trict Officer, as arbitrator. Appeals against decisions by a DO may be made to the Director of District Services, Claims by or against casual workers will be dealt with by Civil Courts in the ordinary way.

Casual workers and their employers

have the right to terminate the employ ment at any time without notice.

Ordinary legal proceedings may be taken against any employer for non compliance with the general provisions of the Ordinance relating to employment conditions.

Permits to Engage Employees replace Recruiters’ Licences. Cash deposits by way of personal security for the duty ob servance of the Ordinance are abolished but a DO may require the applicant for

a Permit to give security in the form of a guarantee of £5O.

Native Assistants Permits may be issued to natives of good character to engage! natives on behalf of their employers in S districts endorsed on the Permit.

Payments, other than wages and ex penses, for engaging employees are for bidden. No money or other considera tion may be given to a native to induce another native to enter into an Agree ment.

Agreements may be made up to 18 months, and if the parties agree, may be extended for an additional six months.

During the period of extension Agree ments may be terminated by one month’s notice on either side.

A DO may, with the consent of the parties thereto, vary an Agreement, ex cept with regard to the maximum term of 18 months.

A DO may terminate Agreements in cases of emergency (epidemics, war condi tions, prolonged food shortages) and also in the case of a native who has inad vertently been allowed to enter into an Agreement contrary to the provisions of the Ordinance. In all such cases where natives have served for less than twelve months they will be returned to their homes at the expense of the Adminis tration.

Not more than one half of an employee’s wages may be paid to him during the currency of the Agreement: but a DO may in special cases authorise part pay ment of deferred wages.

The Administration provides free medi cal treatment to all natives.

With the consent of the employer, the wife and children of a worker may accom pany and live with him at his place of employment. Rations for wives and children will be less than the ration for workers, and as prescribed.

The minimum age limit for workers, 16 years, has been retained, but natives bet ween 14 and 16 years of age may be en gaged for light labour not more than five miles from their home.

The provisions in the present Ordinance relating to Workmen’s Compensation, and the Removal of Natives from the Terri tory have been retained —in both cases with slight amendments.

The restrictions on the employment of married women have been omitted. Sub ject to the provisions of the Ordinance women generally may be employed as domestics and in any form of light labour.

The provisions relating to the payment of monetary allowances to casual workers in lieu of rations, have been retained but these provisions will not apply to natives employed under Agreements.

Forms have been reduced and simplified.