The Great Depression caused sugar prices to slump in 1929 and led to the return of many Jamaicans. Economic stagnation, discontent with unemployment, low wages, high prices, and poor living conditions caused social unrest in the 1930s. Uprisings in Jamaica began on the Frome Sugar Estate in the western parish of Westmoreland and quickly spread east to Kingston. Jamaica, in particular, set the pace for the region in its demands for economic development from British colonial rule. Because of disturbances in Jamaica and the rest of the region, the British in 1938 appointed the Moyne Commission. An immediate result of the Commission was the Colonial Development Welfare Act, which provided for the expenditure of approximately Ł1 million a year for twenty years on coordinated development in the British West Indies. Concrete actions, however, were not implemented to deal with Jamaica's massive structural problems. The rise of nationalism, as distinct from island identification or desire for self-determination, is generally dated to the 1938 labour riots that took place in Jamaica and the islands of the Eastern Caribbean. William Alexander Bustamante, a moneylender in the capital city of Kingston who had formed the Jamaica Trade Workers and Tradesmen Union (JTWTU) three years earlier, captured the imagination of the black masses with his messianic personality. He was light-skinned, affluent, and aristocratic. Bustamante emerged from the 1938 strikes and other disturbances as a populist leader and the principal spokesperson for the militant urban working class. In that year, using the JTWTU as a stepping stone, he founded the Bustamante Industrial Trade Union (BITU), which inaugurated Jamaica's workers movement. A distant cousin of Bustamante, Norman W. Manley, concluded as a result of the 1938 riots that the basis for national unity in Jamaica lay in the masses. Unlike the union-oriented Bustamante, however, Manley was more interested in access to control over state power and political rights for the masses. On 18 September 1938, he inaugurated the People's National Party (PNP). It began as a nationalist movement supported by the mixed-race middle class and the liberal sector of the business community; its leaders were highly educated members of the upper middle class. The 1938 riots spurred the PNP to unionise labour, although it would be several years before the PNP formed major labour unions. The party concentrated its earliest efforts on establishing a network both in urban areas and in banana-growing rural parishes, later working on building support among small farmers and in areas of bauxite mining.