4
NON-SELF-GOVERNING TERRITORIES
the double consultation of the Governments and the double dis- cussion by the Conference are not excessive, particularly if it is remembered that meanwhile the Recommendations adopted at Philadelphia in 1944 and at Paris in 1945 will be receiving considera- tion and application.
Certain considerations to which the attention of the Govern- ments and of the Conference should be drawn will be advanced in the course of this Report. There are, however, two of wide signifi- cance which must be mentioned before the Report can be fairly begun.
The first is the objection that, by undertaking a work of this nature, the International Labour Organisation is departing from its principles of universality and equality of standards, and that it is in substance elaborating a second-best code for territories which are not fully represented in the Organisation.
It is true that in some cases the Conference has not given the definite guidance on minimum standards for dependent territories which is contained in its Conventions of general application. Hours of work is a case in point. The Conference has adopted a detailed general Convention limiting hours of work in industry to 8 in the day and 48 in the week. It has adopted a general Convention con- secrating the principle of a 40-hour week. The Paris Recommenda- tion for dependent territories, by calling on the competent authori- ties to fix maximum hours of work, does not appear to go so far. It was desired to avoid a rigidity which might put difficulties in the way of the essential industrial development of certain territories by setting labour standards dependent on the existence of technical equipment, which would make it impossible for the territories ever to make up for their backwardness in such technical equipment. The regulation of hours of work, however. is positively recommen- ded. Such regulation applies to industry and commerce and "so far as practicable" to agriculture. Special emphasis is laid on a system of reporting which it may be anticipated will lead to the gradual introduction of hours standards of a universal character. The procedure for the application of these general standards re- mains unimpaired.
In any event the example given is an exception. In most in- stances the Conference has retained for dependent territories the general minimum standards indicated in the general Conventions and has asked for their immediate application. In several cases, such as, for example, that of forced labour, the Conference has