219
PUBLIC RECORD OFFICE
C.O.
Reference :-
ALLY WITHOUT PERMISSION OF THE BE REPRODUCED PHOTOGRAPHIC-
COPYRIGHT PHOTOGRAPH-NOT TO
8855 PUBLIC RECORD
OFFICE, LONDON
il.
ADMINISTRATOR SIR A. H. PALMER, K.C.M.G. (Queensland), to the RIGHT HON. THE EARL GRANVILLE, K.G. (Received May 8, 1886.)
TELEGRAPHIC.
Douglas thinks Colonies contributing 15,000/. five years, you should advance as in Fiji, 100,000l. capital account, purchase steamers, buildings, &c.
12.
JOHN DOUGLAS, Esq., C.M.G. (New GUINEA), to the RIGHT HON. THE EARL GRANVILLE, K.G. (Received May 17, 1886.)
MY LORD,
Brisbane, Queensland, April 2, 1886.
I HAVE the honour to transmit to your Lordship copy of a Memorandum dated 24th March 1886, drawn up by myself, and indicating in brief outline what it seems to me are the requirements of the future Government of British New Guinea.
2. I also have the honour to transmit a Memorandum* dated 30 March 1886, drawn up by the Hon. S. W. Griffith, Chief Secretary and Leader of the Government of Queensland, which your Lordship will observe suggests certain conditions as a basis for the administration of British New Guinea in the immediate future.
The Right Hon. the Secretary of State
for the Colonies.
I have, &c. (Signed)
Enclosure in 12.
JOHN DOUGLAS.
MEMORANDUM by the SPECIAL COMMISSIONER for the PROTECTED TERRITORY Of BRITISH
NEW GUINEA.
THE untimely death of Sir Peter Scratchley has sadly retarded the progress of negotiations in connexion with British New Guinea, and has deprived us of the valuable conclusions he had doubtless arrived at after his residence on the coasts of the Protectorate during the months of August, September, October, and November. It is necessary now to commence almost de novo. The late Special Commissioner has sub- mitted to the Australian Governments an estimate of probable expenditure in British New Guinea for the next few years. This was practically accepted by Her Majesty's Government and by the Governments of the Australasian Colonies as a basis of action. I think that in detail this estimate would admit of considerable amplification, and especially so as regards the administration of justice, for which apparently no pro- vision was made. Still, it is a fair outline of an estimate on which to build, and was evidently accepted as such by Her Majesty's Government, when, on the 14th of August
• Enclosure in 14, page 226.
•
last, the following telegram was sent to the Governor of New Zealand and to the other Governors of the Australian Colonies :-
"Her Majesty's Government willing to proclaim Queen's Sovereignty and to con- tribute to cost of New Guinea if Colonies agree to following arrangement-- Colonies to contribute 15,000l. per annum and provide any further expenditure they may approve. Imperial contribution will be the gift of suitable ship, costing, when delivered at New Guinea, not less than 18,000. This offer made in full confidence that your Government will as soon as possible obtain from Legis- lature Act to secure permanent annual proportion. On proclamation of Sovereignty Scratchley would have full legislative powers and control over all nationalities."
I am not as yet in possession of the replies which have been addressed to the Secretary of State.
I believe, however, that Queensland has mtimated tha her proportionate quota has been provided for by Act of Parliament. From the other Colonies, I under- stand that no definite acceptance has been received.
After conferring with Mr. Griffith, the Prime Minister of Queensland, I arrived at the conclusion that he is prepared to take the initiative in the negotiations which it will be necessary to renew.
In the
My duties will shortly place me beyond the operation of telegraphic communication, and indeed outside the area of ordinary correspondence. It will be well, therefore, that I should now endeavour to express my own opinions as to the requirements of the future Government of British New Guinea. I assume, in the first place, that as, among the Australasian Governments, Queensland is the most interested in the tion of affairs in British New Guinea, so to that Government the chief responsibility proper administra- will attach in following up the negotiations with Her Majesty's Government. absence of more defined powers in their Federal capacity, the Australasian Colonies must still be dealt with separately in this matter. If, however, a substantial agreement could be arrived at between Her Majesty's Government and the Government of Queens- land, a considerable advance will have been made towards a solution of the problem. Queensland, being primarily responsible, I assume that the contributions in aid from the other Australasian Colonies would be a matter of easy arrangement.
The annexation of New Guinea was first suggested by Queensland. This led up to the proclamation of the Protectorate. It is evident, and Her Majesty's Government have clearly admitted this, that Her Majesty's Sovereignty must follow. In order that this may be effected, it will be necessary in the first instance to supply the framework of a Civil List, upon which to build up the structure of an ordered Government. Queens- land may, with perfect propriety, and without incurring any serious financial liability, accept the sole responsibility of guaranteeing the whole of the sum required. I assume at once that it may, for such a purpose, be necessary to make an annual appropriation of 20,000, and that this appropriation should be secured for five years. The capital amount thus represented-namely, 100,000., might be secured to Queensland as a first charge on the territorial revenues of British New Guinea. In the meantime a modus rivendi would have been established. Queensland would, under these circumstances, very justly claim to be consulted in the framing of the estimates, and in seeing that the money was appropriated in accordance with such estimates.
As regards administration and legislation, Queensland would also justly claim to shape the general direction of policy, and to define the principles under which the government of the new State was to be conducted. Just as Her Majesty's Government directs the affairs of the Empire, so the Government of Queensland, acting on behalf of the Australasian Governments, would supervise the Government of New Guinea.
But the Government of New Guinea must, for some years at least, be primitive and paternal, dependent much on personal influence. Native customs must be recognised; native rights must be respected. This, in any agreement made with Her Majesty's Government, should be clearly defined, and should be a fundamental article in the con- stitution of the new State, when the Queen's Sovereignty is confirmed. There are other provisions which might find a place in the proposed Constitution. Mr. Griffith, however, who is so familiar with constitutional law, and with the Queensland code, will have no difficulty in taking security that the wishes of the Queensland Parliament in this respect
are enforced.
These leading principles having been defined and embodied in the proposed Constitu- tion for British New Guinea, I do not think that any attempt should be made to exercise any minute control over the administration. Ordinances would be passed by the
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