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Copy No.31

CABINET

CLOSER ASSOCIATION IN CENTRAL AFRICA

MEMORANDUM BY THE SECRETARY OF STATE FOR THE COLONIES AND THE SECRETARY OF STATE FOR COMMONWEALTH RELATIONS

We circulate herewith, for the consideration of our colleagues, the Report of the Conference of officials recently held in London to consider the question of the closer association of the Central African territories of Southern Rhodesia, Northern Rhodesia and Nyasaland (Annex II). The substance of the Report is summarised in the following paragraphs. There is no question of committing ourselves at this stage to a final view on the proposals of the Conference and we do not ask our colleagues now for a decision on the substance of the recommendations. But we do recommend, for the reasons given below, that His Majesty's Government

(1) should, if the other Governments concerned agree, publish the Report

for general information; and

(2) should, without being committed to acceptance of the proposals in the Report, commend them in general terms for the careful consideration of all the peoples concerned as embodying a constructive approach. We should, of course, propose to report further to the Cabinet when there has been time for public discussion of the proposals both here and in the Territories.

Review of recommendations of the recent Conference

2. The question of the closer association of the three British territories in Central Africa has been under discussion for many years. It has recently become more urgent; and last year it was decided to hold a conference of senior officials of all the Governments concerned, to re-examine the problem and endeavour to formulate proposals that might be generally acceptable. This was announced in Parliament on 8th November.

3. The Conference took place during March. Its Report (Annex II), which is addressed to all four Governments, was unanimous on all points. The Conference also agreed on the terms of a Confidential Minute, to be addressed by each team of officials to its own Government, setting forth certain considerations not suitable for publication (Annex I).

4. The Report (paragraph 35) reaches the definite and unanimous conclusion that "closer association between the three territories ought to be brought about, and that the need for this is urgent. The reasons for this conclusion are set forth under the headings "Economic" (paragraphs 25-26), “Strategic" (paragraph 27), "Communications". (paragraph 28), Administrative" (paragraphs 29-30), "Moral and Social" (paragraph 31), and "The urgency of the problem" (para- graph 32). In the Confidential Minute closer association is held to be the only effective means of countering the increasing pressure of the Union of South Africa on the Central African Territories.

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5. While thus decisively recommending closer association, the Report adds: "But in any scheme of closer association certain conditions must be fulfilled. Account must be taken both of Southern Rhodesia's self-governing status and of the special responsibilities of His Majesty's Government in the United Kingdom towards Northern Rhodesia and Nyasaland. Political progress for Africans must be maintained and Africans must be enabled to play an appropriate part

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