Bermudians are still afraid to speak out on controversial issues, two consultants to the British Foreign and Commonwealth Office who have been on the Island preparing a human rights report have found.

Dr. Dessima Williams and Geraldine Terry, who have spoken to political parties, met a number of organisations and held a public meeting, said this reluctance to speak out was also found in other overseas territories.

Dr. Williams said: "Several issues have emerged during our discussions.

One has also come up in several other overseas territories, namely people telling us there is a general reluctance to speak out on issues.

"This seems partly due to the lack of anonymity in a country with such a small population, and partly to due to Bermuda's historical legacy."

Ms Terry said the Human Rights Commission and the Commission for Unity and Racial Equality (CURE) were good examples of human rights practice.

But she added: "It has become clear to us that Bermuda has a painful racial history which has to be taken into account when we are talking about human rights here and now."

They said they were "puzzled" that the Convention for the Elimination of All Forms of Discrimination Against Women did not apply in Bermuda - the only major piece of human rights legislation which has not been extended to the Island. They said they hoped Government would incorporate this.

The women noted that sexual orientation is not covered in the Human Rights Act.

"We have heard that gay men and lesbians - tragically, even young people in school - sometimes suffer discrimination and persecution about their sexuality," said Ms Terry.

"Perhaps this is something that should be more openly debated - but just now, I don't think it is exaggerating to say that fear makes it hard for people to speak out."

The high cost of housing was causing huge problems for low income families, and a strong partnership was needed between Government, business and civic society to ensure continuing progress.

The women have been visiting other UK Overseas Territories on behalf of the Foreign Office to raise the issue of human rights, and they said they hoped Bermuda could "continue to be among the human rights forerunners of the overseas territories".

"We will raise the issues that have come to us, then it is up to the FCO and the Bermudian government, in partnership, to consider how best to move forward."