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would be positive advantages in closer association from the point of view of native policy. Much serious thought has been given in recent years in all three territories to the problems of African advancement, and very considerable advances age Beed dd/Southern Rhodeslaagerberfh58been a strong reaction against extreme policies elsewhere. With certain differences in the political approach all three territories are now tackling the problems of African development on broadly similar lines. Under a suitable form of closer association we believe that still further progress can be made in this direction to the great advantage of all communities in the Central African territories.
Public Opinion in the Territories
20.
African opinion in the two northern territories-and certain sections of African opinion in Southern Rhodesia, for different reasons-has expressed itself as opposed to amalgamation and indeed to any form of closer association. We recognise that African opposition in the northern territories is a serious obstacle to closer association. But in the last resort we believe that the judgment of African opinion would turn on the form which any scheme of closer association might take and on the range of subjects within the respon- sibility of a Central African Government. It appears unlikely that Africans in the northern territories would be prepared to withdraw their opposition to a scheme of complete amalgamation of the three territories. On the other hand, provided that some other form of closer association could be designed containing adequate provision for African representation and adequate protection for African interests, and provided that the services more intimately affecting the daily life of Africans were outside the scope of a Central African Government, Africans might well come to realise the very substantial advantages of closer association from their point of view.
21. The majority of Europeans in Southern Rhodesia would, we believe, favour a form of closer assocation of the three territories which entailed the establishment of a strong central government. In Northern Rhodesia, European public opinion on the subject of closer association is difficult to gauge exactly, but it is thought that the bulk of European opinion in the territory would be likely to support some form of closer association. In Nyasaland European opinion is less definite but has on occasion expressed itself in favour of closer association.
Growth of Population and Increased Political Experience
22. Since 1938 the European population of the territories has more than doubled. Africans have made substantial progress both materially and politically. The people of the territories have, in fact, gained political and administrative experience and should have no difficulty in working a scheme of closer association effectively.
Constitutional Position
23. In the constitutional sphere both Northern Rhodesia and Nyasaland have made substantial steps forward since 1939. Non-official representatives now play a large part in the counsels of Government, and Northern Rhodesia has a non-official majority on its Legislative Council. Both Legislative Councils include African members. While the constitutional status of Southern Rhodesia and that of the two northern territories still remain quite different, we believe it possible to devise a scheme of closer association taking account of this difference and providing for the effective operation of genuinely inter-territorial
services.
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