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REPORT of THE NATIONAL REHABILITATION COMMITTEE ------ To- The Honourable L.F.S.

Burnham, Q.c., M.H.A.,.

Premier.
Sir, Preliminary At your broadcast press oonfe-renoe on the 5th June, 196;, after referring problems that had arisen·as a result of the distur­ human to the pressing bances in recent years, you announced the formation of a National Rehabilitation Committee, the members of Wl'lich, with the exception of the Chairman and two ladies :who are actively engaged in social work, had been selected from a panel of names which, at your invita­ tion, had been submitted to you by organisations whose spheres of activity covered or included the religious, social and economic life of the community.
2.
As the field of disturbances, involving both criminal acts of commission and civil co,nmotion, extended over portions of three successive years, that is to say, the years 1962, 1963 and 1964, you indicated, in your broadcast, that it would be the function of the Committee, inter alia, to examine the problem of rehabilitation one of as a whole and as a national mi:.�or concern to the community, and to pat forward concrete proposals to enable positive action to be initiated for the rehabilitation of persons ·who had been displaced from their homes or communities and who have suffered loss or injury in other· re_spects·.
3.You a_lso announced that the Commit .

tee.

wo11ld 2. be an Advisory Committee.

As in that capacity it would not be able to exercise executive functions (as it was not equipped to do so) it would be required to make recommendations for the setting up of machinery to deal with rehabilitation generally and also to de�l with individual cases.

4.
4.

The Committee's terms of reference are as follows, .. "To examine generally t he condition of persons displaced and otherwis e affected by the distur­ bances ot 1962, 1963 and 1961+ and to determine and advise to what extent such persons should be assisted to return to normal life."
We have recited the preliminary matters above .. mentioned because colJ.eott vely constituted a dire�ti we considered that your statements ve which was designed to .. assist the Committee in the interpretation of these terms of reference and in its deliberations.

5.
5.

Notwithstanding sarily attached to your broadcast, that _neces­ 1 t soon be·came the publicity apparent that there was not general fact that t�e .Committee was merely advisory, recognition for the of the Committee received certain enquiries seeking ampl1• fioation in regard to its functions and also reoetved over a·thousand which communications from individuals set out the losses they had suffered, with requests for compensati on and urgent.relief.
At the outset arid throughot1t the whole of their deliberations, members of the Committee appreciated and fully.under• the stood the reasons tha·� underlaid that lack of recog• nition for, although certain for the provision of tmmediate interim were gtven relief by the directions Social Assistance DepEtrtment and for the commencement of preliminary work for housing development· ., the 3. general situation was allowed to.deteriorate without of any productive the achievement In making that factual observation, say that we are not unmindful of the difficulty rehabilitation, complexity of the task of or beneficial we would like, to which is and result.
generally recognised.

6.

The Committee he�d its inaugural meeting on the 11th June, 1965, at which procedural·arrange-.

ments were dtscussed and settled.

Thereafter, several meetings were held and 30 memoranda, which ware received i p. response wero care.f11].J_y con�ddered.

7 •.
7 •.

At your broadcast press conference above-· to a publ i.c notice invi'ting them,, m_entioned, you also referred to, ·'tbe},great deal of work that.had already been done by the t-wo Committees that were headed by Mr. Gavin Kennard and Mr. Aubrey.· Barker respecttvely, workj_ng under emergency conditions, .

and you ·indicated that we ·sh.ouJ.d conduct .our delibera.;;.

t ions "utilising as far ·as possible the work that · has already been done."

8.
8.

If we may say so, we agree·that a great· deal of good work had been.done by_those two Committees, and the fact that the Reports were compiled shortly the disturbances aft.er .value considerably.

Reports and, where identity of views be-came The Co':nmittee has examined apparent, those ' in the year 1961+ enhanced th�ir'.
has adopted certain of their recommendations, embo�yi.ng_ such amendments .and modlftc·ations as 1 t considered were warran-ted in the light' of it:s terms of· reference, and ol'l the bas'J:s ion in relat1.on to·•-events of .informat that oc-curred and mat.ters that arose subsequent to the submission of those Reports.

4.
4.

PART II Review of the General Situation 9• ·In fulfilling the exercise involved in the f1rst part ot its terms of refere·nce, the Committee kept 1n mind your ·biroadcest be no part-of it·s fµnctions to revive "the of the past."

It.
is sufficient therefore· �tement tha-t 11: would to record agonies briefly that they reveal a sorry tale of death, 1nj1117, carnage a nd destruction, and to relate -111erel¥ what is required to present a general picture factors that caused persons to be displaced wise affected, and of the situation of those persons of the principal or other­ from the time of the disturbances to the present time• We regret to say, bowver, that the latter part of the· picture-may be ·found incomplete response the because that we received to our request for.
infor­ mation, the most from sources that we considered reliable, has not, 1n some c ases, been very helpfu1e 10.The major disturbances, in the year 1962, were 1n Georgetown.

In the.•year 1963, they also took plac«:) in.

Georgetown·, but in the year 1964 they occurred on the West C�ast, Demerara, in the Wismar-Mackenzie area, on the East Coa�t., Berbice, and on tbe-Coren Demerara, on the West Coast, tyne Coast.

11.
11.

(1) On the 16th February, 1962, 28 bus:lnas• premises and .21 dwelling houses in Georgetown -were destroyed or damaged by f tre.

Following on the destruction of the business premises, 99 firms and private individuals submitted to Government claims for loss suffered-• .. 5.

(11)The total loss claimed was $13,2-+9,265.87 but this amount 1s subject to upward revision because 12 claimants did not state the extent of their losses.
From that total should be deducted the sum of $9,301,000 approximately, because that sum represents the aggregate amount of loss claimed by certain firms which were substantially re-imbursed by insurance companie s by -- re a son of the fact that they had taken out riot This-reduces the total amount to $3,948,26;.87. insurance.

Very few of the firms and individuals have re-estab lished themselves, and 56 persons who occupied that were destroyed had to find alternative ho11ses the 21 dwelling accommodation.
During these dtsturbances, ; pers�ms were kilJ.ed and 80 in 1 ured.

12.On the ;th April, 1963, 21 business premises in Georgetown were J.ooted, and claims for loss and .damage amo11nted l·osses suffered to $401 ,ooo approximately.. Certain during the disturbances of this year were not regarded by insuran�e companies as attri• butable to rioting a;nd·therefore claims amounting to $156,396 parts_of made upon them w-re met.
In other the country there were sporadic incidents involving injury to perso�s and damage to property, resulting in the death of 13 persons and injury to 730.No statistics are availabl e to ind'!.cate· the total number of.persons who were displaced or other­ wise affected, .but it is considered are included in the figures for the year 1964-. that most of them 13.

(i) During the _year 190+, disturban ces involving (almost entirely) the.two ma.

;or ethnic groups took place in the areas before-mentioned,.
As a result, about 2,668-families involving approxi­ mately 15,000 persons were forced to remove their 6 .• houses to settle in communities of their pa_rticular ethnic identity, or to squat on lands owned by Govern­ It is estimated that ment and private individuals.

approximately 405 acres of privately owned land, and approximately 500 acres of Government owned land, have been occupied by persons having no right, title, claim or interest in or to them.
(ii)Over 1,400 houses were destroyed by acts of arson and other 1.mlawful and malicious acts.

Many farms were laid waste and livestock wantonly slaughtered; and 176 persons were killed and 920 injured.

These criminal acts were perpetrated over a period of several moriths and resulted in damage and loss to property of.

approximately f4.3 million, and caused consider able unemploy ment affecting 1,31+2 families.
(iii)A breakdown of the figure of displaced persons shows that, out of the total of 2,668 families, 523 were farmers, 511 artisans arid.tradesmen, - 379 were businessmen and traders, 115 were clerical .

.

employees and the remaining such families comprised persons as unskilled labourers, domestic servants, part-time employees and the unemployed.
14.In order to ascertain the situation in regard to national relief given to persons displaced and other­ wise affected by the disturbances, the Committee inter­ viewed an Officer from the Social Assistance Depart- ·m�nt and learnt that·.

the number of persons ·presently receiving regular monthly assistance was considerably reduced during the early months of 1965 and now stands at 870, but this figure is expected to be further reduced to about 500 by the end of ·the year.
The reasons for the great reduction in the number of persons receiving assistance are the introduction of a stricter 7. system of interviewing and reviewing, an easing of tension generally as a result of which many persons have returned to their former employment or have found alternative employment, and the fact that many farmers have returned to the farms they·had abandoned.

1,.
1,.

The Committee visited most of th� areas now and previously occupied by·displaced perspns on the West Coast, Demerara, and on the East Coast, Demerara0 We selected those coasts because disturbances occurred in certain areas on each ·coast at a time that was ·concurrent with, or subsequent to the preparati<;m or submission of the Barker and Kennard Reports, and therefore not covered by them.

16.From the information in our possession, culled from the.
Barker and Kennard Reports, from memo� I , ' ' .. � randa and.other communications received, from the personal lmowledge of some members of the Committee, from int·erviews with persons from two organisations and other knowledgeable persons on our we encountered visits, we came to the following nst� general conclusio (a)there has been no deterioration in the general situation, praedie.l.'
except that larceny is rampant, notably in tha Beterverwagting, Golden Grove-Nabaclis� Victoria, Clonbrook and Mahaicony areas, on the East Coast; .

.

(b)the overall situation is greatly improved, except in a few 1sola.ted cases, such as an area in Blankenburg ·which has been described as· "no-man's land" and in which a school ·still remains closed on that account; (c)tension and emotional have str·ess subsided considerably; 8.
(d)fear still obtains in varying degrees, the higher degree being in cases where persons have suffered injury to their perso11 or damage to their property or threats of sertous attack to their person or property, and the highest degree being in cases where persons have suffered the homicidal loss of a member or members of their families; (e)frictton exists between adjoining areas and the where one has some amenities other has not; for example, where persons in a partic11lar area that is not provided with potable water have to encroach on adjoining areas in order to obtain it; physical changes in the weather affecting sanitation and drainage, or the lack of those amenities, also cause friction; (f)as is to be expected where persons are displaced from their own communities and forced to seek refuge elsewhere, there is great anxiety with regard to their f llt ure; (g)with re�ard to the movement of persons, in several areas persons have returned to their former employment though not necessarily resumtng residence there with their families.
This is particularly notable in the Mackenzie area where 445 persons out of a total of 744 fami­ lies who were displaced·, ha11e returned, most of them being employee s of the Demerara Ba1\xite Company.

Those who returned have experienced no racial 9. animosity; they move about freely and take part in every aspect of civic life in the area.

In_ contrast, there are certain areas, for example, Black Bush Polder, Mahaicony, Canal No.

1 and Canal No.
1 and Canal No.

2, where certain farmers have not returned t o their farms because they are situated in areas predominantly occupied by another ethnic gr0t1p; (h)except as listed above, it would appear that there is free movement of persons in those areas of the coastal belt that are now occupied by displaced persons• and even in .the outlying districts there would be much greater freedom of move­ ment if provision was made for more adequate police supe�vision and protection.

10.
10.

PART III Main Proposals for the task of Rehabilitation 17.At an early stage of its deliberations the Committee recognised that ·the vast and difficult task of rehabilit ation could not be solved by the adoption of piece-meal measures, nor by making recommendation� which, if accepted, would probably result in the rele­ gation, to the appropri ate Ministries or Departments of Government, ot individual branches of the problem, for their implementation, or sol1\tion.
It therefore concluded that the task of rehabilitation should be entrusted to two agencies:-one to be responsible for housing development and the oth3 r to be respon­ aid and other sible for the dispensement of monetary land and forms of assistance of a varied character to those who qualify as hereinafter defined.

18.We therefore recommend that two bodies be constituted -the first to be styled "The Housing Development Trust," and the second "The National Aid to as Agency."
The former is hereinafter referred "the Trust" and the latter as "the Agency."

Although they will be separate of collaboration between them in executive operation, there should be a measure entities and each body will formulate its policy in acc.ord ance with any administrat:lve·directions given and in the light of recommendations made by this Committee.
19.Our recommendation that these two bodies or organisations be set up may, at first view, appear rather elaborate to serve the purposes of their estab­ lishment but, in makj_ng it, we had in contemplation that 11. the problem of rehabilitation, being only transitory, was comparable to a national disaster, such as a hurri­ ca�e or an earthquake, and that the best and most expe­ ditio11s way of remedying it would be to remove it from channels of normal procedure and place · -i.t in the hands of agenci.es.possess:lng a fair measure of autonomo11s power to deal with it.
The two agencies -would not be permanent establishments and their personnel and staff ·would be redaced progressively as any of their tasks are concluded.

It is anticipated that the functions of the Agency-would be completed within about two years except for outstanding loan repayment s, which by that time would have become .a.

routine .responsibility of the financial orga.nisatton (hel'einafter_mentioned) servicing the Agency'_s _loans.
On_ the other hand, the functions of the Trust "(ill not have been discharged under a period of m.any -years; but it is pcssible .that it may be found conven-ient .to extend the activities of the Trust to other residential schemes.

20.

As the task of rehabilitation Will require the .


utilisation of public money, and as a resort.to the civil law for and expenditure of large, if not vast, sums certain purposes will no doubt be required, it seems certain that both bodies will ha,•e to be clothed by statutory authority.
After some research into, and consideration of, this question, the Committee decided that it should be left to the legal department of Government to determine whether an·independent legal enactment wonld be necessary, or whether eitrer or ·both proposals could be fitted into the scheme of· any current legislation, by·way of amendment to it with any modi­ fications th�t may 1::e necessary; which latter-cot1rse the Committee considers pref-arable, as it would minimise delay.

12.
12.

21.The Committee has not recommended What sum of money should be made availabl e to each body, because it is not possible to estimate 'What public.

funds will be required until certain decisions relating.t o the functions of the Agencies have been taken and estimates prepared and submitted to Government for approval.

PART IV Housing Development·and Resettlement 22.


(i) The members of �h·e Housing Development Trust should comprise• - (a)a Managing Executive, who, in addition to being a member of the Trust, should be responsible for impl�mentation of the Trust's decisions; (b)a person with considerable ex:perl ence in land and housing development; (c)an Accountant; if possible, one with lanQ who has been associated and housing development.

; and members.
; and members.

(d} two othe·r ('ii) The Trust should be provided with· such executive and supervisory staff as may from time to time be considered necessary for the implementation of its responsibil ities.

23.The object and responsibility of the Trust will be to implement residential development schemes for bona fide displaced persons throughout the country wherever the need can be shown to exist.

Government- 13. owned land� j_n areas suitable for such schemes should be made available to the Trust.

2+.
2+.

In fulfilline its responsi bility_, the Trust should operate along sound commercial lines with the objective of achieving a break-even - :financial position between ten to fifteen years.

Tho trust will not be encumbered · by considerations of aid or rel1e1·1n any form, which will be the sole responsibility of the Agency.
25.The functions of ths Trust will bes- (a)to negotiate for and to purchase land considered necessary for resident:1.a 1 developme nt schemes; (b)to carry out the.development of lands made available as aforesaid and purchased for residential development schemes in keep.ing With plans approved by the_ Central Bousing and Planning Authority; ( c)to sell lots .in development schemes to displaced persons, as hereinafter defined, who may wish to purchase, be they those already occupying the land, or others who, with the approval of the Trust, may wish to go into the area; (d)to ensure that any displaced person occupying a developed lot either agrees to purchase the lot or be required to vaca.te it; and (e)to provide for easy payments by way of such terms and conditions as.may be :prescribed.
_26.

The Committee recognises that all squatters, and that is to say, all persons who have entered- 14. settled upon lands in and to which they have no right, title, claim.or , interest, are trespassers.
It considers however, that although squatters who are displaced persons will be eligible to purchase lots in ·lands which have been acquired for development schemes (as stated above) the same privilege should not be extended to squatters who are not displaced persons, as they are merely opportunists who took advantage of the situation.
In this connection, th13 Trust should exercise especial care to ensure that a "land-grab ber" or a person who already owns a house, or has a house at his commando� disposal, does not, by resorting to any artifice or device -for example, by using the services of a "nominee" -derive any benefit under a development scheme.
27.It is to be noted that a difficult situation I!light arise in a ca�e where lands in private ownership, but which are occupied by displaced persons, are not acquired from the .owner for residential schemes.
The Committee is reliably :lnform ed that it was mainly at the request of Government, and partly on humanitarian grounds, that legal action was not taken by the owner to dispossess those squatters; but tt draws attention to the question beca use, if such a contingency arises, the owner may well claim to be a person "otherwise affected" by the disturbances and therefore deserving of some considera­ tion or assistance in displacing them.
28.In fulfilling the function mentioned in sub­ paragraph (b)'of paragraph 25, the Trust will have due regard to the r·ecommendations set out in sub-paragraphs (1), (2), (3), (4) and (5) of paragraph 14 of the First Interim Report of the Barker Committee dated the 12th June, 1964, which are as follows:- 15.
(a)that existing communities be extended to accommodate additional families who desire to move thereto; (b)that a s1.1ff iciency of land be acquired and to to accommodate these families allow for additional community facilities such as, schools, public recreational space, community centres and so· on; (c) that the area of land and its location be selected to allow future growth; and (d)that ribbon development and the develop­ ment of isolated communities be d_iscouraged.
29.. On completion ·of residentia l development scheme, all residual land in the area.

developed should be vested in a local authority.

In this connection, the Committee anticipa tes tho early implementation of the_ Marshall Plan proposal for local government.

PART V Monetary Assistanc e 30.


(1) The Members of the National Aid Agency should comprise - (a)· a Managing who, 1n Executive addition to being a member of the Ag�ncy, would be responsible for implementation of the Agency's business; (b)a technical person preferably qualified in Social Science; (c)an Accowitant or an Auditor; ;t6.

(d) �rwo other members.


(ii) In aid of collaborat ion between the two Agencies (referred ·to above), the Committee consider s that the 11Two other membl3rs" in the composition of each should be the same two persons, be persons who served as members, and that they should· etther of this Committee or of the Barker or Kennard Commtttees, as they will be persons having practical knowledge and experience of the problems involved.

31.
31.

The Agency should be pro�lided with such executive and supervisory staff as may from time to time be considered necessary for the implementation of its responsibilities; and the services of a Valuer should be made available to it.

32.

The main function to dispense Agency will be of the and responsibility aid and other forms of assis­ tance, as herein prescribed, to those who are eligibie and qualify therefor as herein defined.

33.
33.

(i) The first task of and de�ermine, consider in its from all the information the Agency will be to possession and such other evidence as it" may call for, who are displaced persons and who are persons, though not displaced from their homes or communities, have been otherwise affected .

It is to be noted that there have been cases where a person has been both displaced a.nd otherwise affected; for example, a person whose residence was on his business premises.
(ii)Having regard to the very onerous nature of this task the Agency will no doubt require the advice and assistance of legal and technical pers9ns; and especially so, as the Committee considers and recom­ mends that the decisions of the Agency on these questions should be final.

The Committee has taken 17. this firm decision because it considers that a stage has been reached which admits of no further delay in the ministration of aid and relief.

34.
34.

In the perfor.l!lance of that task the Agency will have regard to data from every available source relating who were displaced to persons or ot-herwise affected by the disturbances and 1964.
In this connection, in the years 1962, 1963 a considerable compila­ tion of statistics will be readily available to the Agency, notably .those o�mpiled by the Kennard Committee in the year 1964, those in the custody of the Mini.stry of Home Affairs and the Ministry of Trade and Industry, in relation to t'1e year 1962, all of which, together with claims arising from letters Committee, have been summarised Appendix to this Report.
addressed to this and presented os an 35.In its consideration and determination of this question the Agency should formulate its own procedure, including the form of notificat ion.that is to _be given that the Agency consi.ders a person to be displaced or otherwise affected.
A ".displaced person" should be taken to mean:- "Any person who, during or on account of the disturbances, having suffered, or having a reasonable apprehension of, injury to his person or damage to his property, vacated his normal place of residence, including the dependants of such person, wh·o were either residing with, or being maintaine by, that person.
11 d A "person otherwise affected" should be taken to mean:­ "Any person who, though not being a displaced person, during or on account of the 18. disturbances, suffered injury to his person or damage to his property, including the dependants of a person who suffered death or permanent incapacity, who "W'8re either residing with, or being maintained by, that person."
These two definitions ha·ve been drafted and are designed to be used as normal working definitio�s but, should any anomalies arise, the determinati on of the Agency will be final.

36.The Committee's views on the question of are ex-gratis payments in the nat ure of compensat:1.on not included or dealt with in this part of our Report but are set out later.
37, (i) A person will be eligible, end be qualified, or declares tbat he is a displaced person or is a person aid only if the Agency considers to receive otherwise affected.

(ii)The extent of aid to be given should be determined ?Y.the Agency after an examination of each ca.se on its merits, and having regard to the funds at its disposal.

(111)The fo:rms of aid to be given should be by way of loans or grants.
Loans 38.The Committee realises that, in the case of loans, the administrative costs involved in their processing and servi.cing will be substantial.

In order to aJ.J.ev iate that cost, it considers that the question should be explored as to whether of an the services 19. existing financial organisation could be obtained for those purposes Credit Corporation was mentioned •.

In this connection, the British Guiana but it is recognised.
that that organisa.tion may well be already ·o"erburdened and, to 1mdertake the task, may involve the expansion.

of its staff.

39.Where loans are made, the following rules will apply:- (a)the Agency shall-have regard to normal commercial principles; (b)the Agency shall take snch precautions to ensure that they are utilised for the purposes.
for which they are made: provided that the Agency will not be precluded, at the request of a person to whom a loan is made, and if it thinks fit, from varying the terms on which it was made; ( c)as a general rule they should .
be made to assist a person in obtaining a home or in ·setting himself np in bus_iness again but they may, with the express permission of the Agency, be used for other purposes; (d)they shall.be repaid within such time as the Agency shall prescribe; (e)the rate of interest payable shall be at such rate as is prescribed by the Agency but, in any case in which the Agency constders that special reasons �xist for doing so, they may be granted below the prevailing rate of interest for the duration of the loan, or free of interest for a period of from on� to three years; 20.
(.t') security will be in such forms and subject to such terms and conditions as the Agency presc·ribes.
Grants 40.Grants to be made shall be in the discretion of the Aeency, bllt they should be made in the following oases:- (a) In cases of exceptiona l hardship, the Agency lll8:Y, upon individual application and after an examination of each case on its merits, make grants LlP to a limit of $500: Provided that in the case of a family which has lost its breadwinner, either by-reason of death or JJ0rmanent incapacity, the Agency shall, in addition to a grant, make provision for the maintenance and education of the chi�dren, in being, of such breadwinner.
(It is to be note� that, ·1f the Agency is dissolved after it has completed its principal functions, the responsibility for adm:lnistering these payments will have to be transferred to the.

Social Assistance Department or some other organisation, which should from time to time review the circumstances relating to each case for the purpose of making whatever adjustments are considered necessarye) 21.
(b)Smaller grants may also be made to tradesmen, other self- artisans and employed persons, who lost their tools of trade and other equipment, to enable them to re-establish themselves in their former or other business pursuits.

PART VI Miscellaneous Recommendations Farmers and Loggers 41.
(1) In addition to the recommendations made with respect to displaced persons, we make the following additional �ecommendations in the case of farmers and any d'i'splaced per sons who wish to take up farming: - (a)a survey of abandoned farms should be undertaken by the appropriate Ministry; (b)where permanent crops have been destroyed, grants of seedlings should be made to enable the farms to be re-establis hed more speedily; (c)farms, which have been abandoned by displaced persons 'Who do not wish to return to them, should be acquired for disposal to other farmers; (d)as requests have been receiveq 1n Irj.any cases by farmers who are 22. willing to return to their farms but are afraid to do -so, we recom• ·._mend that greater police supervision should.be afforded and protection to those with holdings in outlying districts.
(11)In the case of loggers 'Who have been unable to work their woodcutting c·oncessi_ons on account of the disturbances, the Committee recommends that they be relieved from payments of minimnm royalty during the years they were·unable to work, Employ!

)lent 42.There are large numbers of displaced persons who are yet to find employment.
under­ The Committee stands that a circtJlar was is sued to all Departments of Government asking officers in authority to provide employment, where possible, .to persons displaced in order to effect speE:1dY rehabilitation.

The Committee considers, that agriculture will afford a main source of livelihood for such persons if suitable land is made available to them and therefore recommends that this need should be recognised in the framing of development schemes.

Rates and Taxes >+3.


At an early stage of its deliberations, the Committee sought from the appropriate autho�ities certain information on the subject matter of rates and taxes but has not yet received any reply to its request.
As· no information and as has been received 23. the Committee understands that there has been consider­ able default in the payment of rates, taxes and rents in the areas of certain local authorities as a result of outward migration and other causes, it agrees with and adopts the recommendation in paragraph 25 of the Kennard Report that the Ministry of Local Government should examine what relief·, if any, should be given to ratepayers and tenants of local authorities who haye suffered loss as a result of the disturbances.
Forced exchanges and disposals of property 44.The Committee considered the recommendation made in sub-paragra ph (xi) of· paragraph 23 of the Kennard· Report with respect to the setting up of a legal tribunal to deal with cases of "alleged fictitious and forced" exchanges and disposals of-property during the distur­ bances.

A few of the memoranda received also urged that that situation should be examined 45.In an earlier part of this report we have and remedied.
recommended that short-shift should .be given to "land• grabbers" and others who were not displaced persons but who took advantage of .the situation and squatted on lands belonging to others.
We consider·that a similar policy should be followed in cases where certain persons enriched themselves at the expense of untortunate victims who, acting under duress or the apparent hopelessness of their situation, disposed of their property at gross under-value and that those persons should be compelled to dis_gorge 'their ill-g�tten gains.
recommends that a legal tribunal The Committe e therefore should be appointed to examine such cases and if i_t consi�ers that in any case the transaction was harsh 2+.

and unconscionable , issue a certificate to that effect; such certificate should be deemed to be prima facie evidence in any legal proceedings which may be taken to vary or upset the transaction.

46.In making that recommendation, the Committee recognises the inherent legal obstacles and.
difficulties that are involved in any attempt to 'upset a transacrtion that is closed, or ostensibly so, and especially so where it has been evidenced by a document or an exchange of documents.

The Committee, however, considers that the s:i,.

tuation is somewhat analogous to the case where a transaction by a rapacio11.s money-lender may be reviewed and upset or varied by a Court on the ground that the transaction was harsh and unconscionable.
The Committee also realises that legislation would be required to implement its recommendation but that, if recourse to legislation is considered to be too objectiona.ble, - t�e alternative is to give full legal aid to any victim who may be advised to resort to a court of law to " remedy his grievance.
Ex-gratia payments in the nature of Collipensation 47.With respect to the question of compensation, a considerable number of commu­ the Committee received nications in which requests were made for the payment of some measure of compensation for loss and damage suffered as a result of the disturba nces.

It therefore devoted· much thought to the subject.
48.In discussion, any question of Government liability in the matter was excluded but the Committee was not unmindful that of the suggestion or contention there is a moral obligation on the part of the Govern- 25. ment to make some recompense for loss suffered, by reason of the fact that the security forces that were called in aid during· the disturbanc es, and especially during the disturbances in the year 1962 in the "proclaimed area".in Georgetown., were inadequate to contain a situation which might arise, and which in fact did arise.
49.

After prolonged discussion, the.Committee came to the conclusion that it would be fair and equitable to give some recompense to persons whose business premis�s and dwelling houses were destroyed or damaged beyond repair during, and as a di.rect result of, the disturbances, and in respect of which insurance claims were not, and are not likely to be, met.
The Commit-tee therefore recommend s that favo,1raple consideration be given to the making of ex-gratia payments in accordan ce with the following formula:- (a) where the insurance carried exceeded $12,000 -33 1/3 per centum of.

the a�ount·insured; (b)· where the insurance carried was between· $8,000 and $12,000 -40 per centum of and the amount insured; (c)where the insurance carried was under $8,000 - 50 per centum of the amount insured.
Where any such property was not insured, by satisfactory ·sbould be estimated evidence· and·, for its value the purpose of applying the formula, 50 per centum of that estimated value should be taken as the amount of insurance which it would have carried if· it had been insured.

50.This recommendation does not extend to cases of loss of life since the circumstances surrounding 26. each case would have to be known and carefully examined.
Provision, however, is made to cover such cases in the proviso to sub-paragraph (a) of paragraph 40: we state "the proviso" because a person who receives an ex-gratia payment should not receive a grant as well, but the children of such a person should still.

be eligible for the benefits conferred by the proviso.

51-.

The Committee considers that if this recom­ me�dation is accepted it would be the most expeditiou s way of granting aid and would reduce the task of the Agency.
Summary of Claims 52.Set out as an Appendix to this Report are two tables summarising the claims which have be_en made to Governme .nt Ministries,.

the Kennard Committee, and this Committee, in respect of losses for 1962, 1963, and 1961+.
These tables have been prepared from data available to the Committee, but they cannot be con­ ve assessment sidered as a definiti suffered, They do, however, provide of total loss an indication of the percentage of loss attributable to each of the categories set out and show how any amount which might ·be made available for monetary aid could be distributed.

5'3.

A critical examination of all claims will have to be made by the Agency.
It may be found that many claims have been duplicated, that some cannot be substaritiat eq, while on the other hand there may be many who have not claimed ..

It was not possible, from the data at the disposal of the Committee to establish the e:ictent to which claims made to the Kenna.rd Committee have been ·duplicat ed ·1n claims ma.de to thi.s Committeeo ·p------ v. In view or these di!f1cult1es, prov1s1ona1 sums have been allowed against each category to provide for such con­ tingencies.

5'1t, •.
5'1t, •.

It is to be noted that among the claims submitted in respect of the year 19.62 was an �mount of $4.0 million claimed �y certain Insurance Companies as an underwriting of claims whtch they might be called upon to meet.

We merely note the fact and,of course, no co�sidefation was given to it, nor is the amount included in the column headed "Amount Outstanding"· in Table II.

;;.

No provision has been made for claims a.rising from death.
As referred total of 191+· persons were killed but.the from the dependants received �o earlier letters of only nine in o·ur Report, a Committee persons who were killed and no financial claims were made in them.

The Committee cannot, therefore, from the available data_, make an estimate of the amount· to this category and none ' which should be alloce.ted ' has been included in the coiumn headed "Amount ' ' Outstanding" in Table II.

PART .VII Conclusion 56.


While it will have been observed part of our Report that there has been no earlier £rom·an deterio�ation in the situation of displaced persons since the cessation of the main disturbanc�s in the year 1964, we would like to emphasize the fact that a great number of persons have suffered, and are still suffering, _considerable hardship and privation.
Many 28. have lost wha� 11��1e �hey possessea;o�hers, �n �he lower and lowest income bracket, and even some in the middle and higher brackets have sustained .loss which is, in some form or will be, consic!erable, unles� assistance .

means of earning is given to them to restore their lost an·income in.some shape or form.
57.We lay equal emphasis on the urgency generally that pertains to the requirement for the acquisition and development of lands on which displaced persons �Y' be settled and, in particular, to the adoption of measures to contain a few situations to which we have adv-erted in PART II of our Report which are from day for example, an to day .susceptible to deterioration; area which lacks a supply of water -an .indispens able amen;!.ty for existence.
With respect to ·land develop­ ment several areas on the have East Coast, Dem�rara, .

already been surveyed , We consider that an early start should be made to pursue the further such of those lands that are still found suitable development for of the settlement of.

displaced persons.
displaced persons.

We are of opinion that aided self-heJ.p sobemes should be introduced wherever possible bec1rnse this is a desirable feature of community development and would reduce the costs which would be involved in the development_ of such lands.

5'8.

In concl11s ion, we tender our advice in regard to the question of th(3 integration of displaced families and individuals into the commi:mi ties of which they were formerly a part.
We are of opinion that, while every encouragement should be given to them to return to the places of their former abode, it is not feasible to prescribe any general formula to induce them to do so; and, ¥urther, that it would be inadvisable to attempt to do so -unless the formuia was assured of ·success in e!).

operation, for failure of its objective 11JC>Uld create our a worse situation.
One of the reasons for forming opinion is because some or· the .displaced persons we inter­ viewed told us that theywould like to return to the sites of their former ·homes but were unce·rta:l.n of the welcome or reception that awaited them from those from whom they bad to flee.

We conclude therefore that the problem is one that should be allowed to resolve itself, as we think it will be resolved, by natural processes, that is to say, by tha pass�ge of time and altered and happier circumstances·.
59.The Committee would like to place on record its appreciation of, and thanks for, the services.of Mr. E-.A.

Romao who was appointed to advise and assist the Committe e in its task.· In addition to the advice and assistance he gave to the Committee, Mr. Romao most willin.gly and ·obliging .

.

ly did a considerable amount of ' work in other respects and for tha� ·.additiona l burden that he undertook the Committee is ·most grate.ful.

(Sgd •. )

Stanley Gomes Chairman (Sgd.)

Ala Baksh (Sgd.)


P.Madray (Sgd. )'

Dorothy Bayley (Sgd.)

P.Matthews (Sgd.)

c.v. Cambridge (Sgd.)

Bhola Nauth (Sgd.)

C.I.

Figueira (Sgd.)

C�andra Singh (Sgd.)

F.C.

Lawrence (Sgd.')

R.A .. Wilkins (Sgd.)

.

o. Lucas 1965� 28th September, t - TABLE I Completed rrom Data Available to N ational Rehabilitation Committee and letters received by the Committee Number Amount Clai m ed Received f'rom Amount of Claims Insurance Cos. Outstandi ng r. .. .... ...
Remarks 144 $14,129,795 $9,178,000 $4,951,795 See note (2) Table_II, add - - See dwellings ·in 1964, '"Fire $1.000.000 Provis.

- - Chief's Report shows no evalua- tion 1962 -·- Category Busiz:ess Dwellings CropE and Livestock - Toole of Trade ts peper.den - Miscellaneous - I - - - - - - - - - Not known.

- - Not known.

- Not known.

Not known.

Provision for f'urther claim s Totals 1-000.000 $5,951,795 •� ...... - {.

, , ;_ ... • C ; .,.

; ·I.'

> L , .. -.. .

.

...

I .,.

'- .


.. TABLE I (Continued) Completed from Data Available to National Rehabilitation Committee and letters received by the Committee -1� -- ,.• I - ' Category Number Amount Claimed Received.from.

Insurance Amount Cos.

Outstanding of Claims Remarks 4cn.626 156,396 245,230 Add 45,000 Provis.

- - - .. Business - -· Dwellings 21 - Crops and Livestock Tools of Trade ' Dependents - Miscellaneous - Provision for further claims Totals - - - •·,.r - - - - - - " - - - ·- ,.
•, ·- J .

.

.

·- -· .. L.s.ooo I 290,230 Complete·d f'�om Data Ava:i.lable to National and letters received by the Committee Rehab.ilitation Committee TABLE I (Continued) � Catego�y Number Amount Claimed Received of cia.ims from -Amount Insurance Cos.

Outstanding Remarks ·•_1· 4 .• ,:,.

,.

Business Dwellings· Crops and Livestock Tools of Trade Dependents eous Miscellan :for Provision · ·further claims Ic-:..., Totals· 421 113 e -905,126 $6,000 $ 899,126 Add $50,000 Provis.
603 2,120,162 - 875,195 - 66,871 - - - 161 115,043 - - No calculati be made.

2,120,162 Add 100,000 Provis.

66,871 Add 6,500 Provis� 875,195 Add 50,000 Provis.

115,043 Add $12,000 Provis.

on shown or could i ' 25 CL;I I ' .

9 $4,082,397 $6,000 $4,294,897 '· •·' � 'j 218.500 I Summaries: 1962 Total 1963 Total 1964 Total $ 5,951,795 290,230 4,294,897 Grand Total $10,536_, 9_22 r _.,, _:.-;- - ,1.,.. _ .

.
.

._., ... --- >-� r, -, TABLE II 1962/1964 REHABILITATION COMMITTEE KENNARD COMMITTEE Category Amount Outstanding Category Amount Amount Claimed Category Amount % Total Amount % Total Amount- ' Business $ 7,191,151 - '68.

201% ' $ 498,494 * l 7.

083Jo ' .

Dwellings 2,220,162 21.06g>)> 2,175,424 74.550'/4 Crops and Livestock 925,195 8.791% Tools of' Trade - Dependents ·- ,. '

73,371 - 0.715% - -:._ .. Miscellaneous 127,043 1.221.Qi 244,170 - - - 8.367io - ' Total.
J 10,536,922 100 % 2,918,088 100 % *Does not include Georgetown and Berbice.

N. B.

(1) From the data at our disposal we are un�ble to state to what extent claims tabulated by the Kennard Committee in claims ma.de to the National Rehabilitation have been duplicated Committee.

( 2) In addition to the claims detailed $4,000,000 (known) after the 1962 dis·turbances ·to persist with their claims.

above Insurance Companies submit-ted claims to a total of .

It is not known whether they would wish