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PREFACE
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The question of closer political association between Southern Rhodesia, Northern Rhodesia and Nyasaland has been under con- sideration for many years. A Royal Commission under the chairman- ship of Lord Bledisloe, which reported in 1939,* concluded that the time was not then ripe for amalgamation or (although they did not consider such a solution in detail) for federation. The main reasons for the Commission's conclusion were the differences in native policy between Southern Rhodesia and the northern Territories, their different stages of political and social development and the financial weakness of the northern Territories. The Commission recommended the estab- lishment of regular consultative machinery. This was set up, in the form of the Central African Council, in 1945, and it has done much useful work within the limits imposed by its constitution and its lack of executive powers.
2. A growing consciousness of the limitations of purely consultative machinery led, however, to the revival of the idea of closer political association and the then Secretary of State for the Colonies, the Rt. Hon. James Griffiths, M.P., stated in the House of Commons on the 8th November, 1950, that His Majesty's Government had decided that there should be a fresh examination of the problem of the closer association of the three Territories. He announced that a conference of officials of the three Central African Governments, His Majesty's Government in the United Kingdom, and the Central African Council would accordingly meet early in 1951 to examine the problem and make recommendations. That conference took place in March, 1951, under the chairmanship of. Mr. G. H. Baxter of the Commonwealth Relations Office, and its report was published in June, simultaneously with a geographical, historical and economic survey‡ and a com- parative survey of native policy.§
3. The officials' report set out the need for closer association. They pointed out the economic interdependence of the three Territories and the consequent importance of the integration of economic policy both internally and in external economic relations. The Territories, for the time being relatively prosperous, were, individually, economic- ally vulnerable and would be much stronger as a single unit with a more broadly based economy. Such a unit would also be stronger from the standpoint of defence. Rail, trunk road and air communica- tions needed to be planned on a broader basis. The unification of certain public services (difficult if not impossible as things stood) would secure greater efficiency. The most efficient use, in the interests of the people as a whole, of the capital resources of the whole region in finance, raw materials, power, labour and technical skill would be promoted. A general quickening expansion of the economy of the area would bring with it advantages to all the inhabitants and in particular the possibility of the more rapid social advancement of the African population. The need for action was urgent.
4. The officials considered the obstacles to closer association noted by the Royal Commission and found that since that time they had been materially reduced. Certain differences in native policy between
† Cmd. 8233.
* Cmd. 5949.