CAB129-45 — Page 364

Page 364 no effective link between the three territories and would amount to little more than the shadow of a central Government that would fail to attract the respect and loyalty of the inhabitants of Central Africa. It might, indeed, prove a source of weakness rather than of strength. Southern Rhodesia would not be prepared to share its authority with such an organisation, and the Southern Rhodesian members saw no prospect of securing its acceptance by their Government and Legislature.

A Federal Scheme

15. The Conference then turned to consider whether a solution might not. be found on a truly federal basis. The problem was fourfold:-

(i) could agreement be found for the inclusion of a sufficient range of subjects

in the federal field to make it a reality;

(ii) could agreement be found for a form of federal Government possessing sufficient power and authority to further the development and enhance the prestige of the three territories;

(iii) could adequate provisions be devised to satisfy Parliament and public opinion in the United Kingdom that the discharge of His Majesty's Government's responsibilities towards the African population in the Northern territories would not be impaired;

(iv) could these provisions be such as to be acceptable to the people of

Southern Rhodesia, who have been self-governing since 1923.

The Conference, while very conscious of the difficulties of the task, feels entitled to claim that these desiderata have been met by its recommendations.

The Federal Field

16. In devising the list of subjects which are recommended in its Report for inclusion in the federal field, the Conference was guided by the broad principle that matters which closely affected the everyday life of the African should as far as possible be left within the control of the territories. These subjects, such as local government, education, health, agriculture and allied subjects, would therefore remain the responsibility of the territorial Governments. Nevertheless, in addition to the minimum federal content of external affairs, defence and communications, a wide range of authority has been assigned to the federal Government, sufficient, in the view of the Conference, to make it an effective force for the protection and furtherance of common interests in Central Africa.

The Safeguards

17. We believe, moreover, that in the possibly more difficult side of its task the Conference has succeeded in devising arrangements which will satisfy opinion in the United Kingdom that the interests of the African have been safeguarded and the discharge of His Majesty's Government's responsibilities assured. Certain features which have been included in the scheme for this purpose will also, we consider, make a positive contribution to the welfare of British Central Africa. That is, of course, notably the aim of the proposed Development Commission and the Loans Council, which it should be noted would be joint federal-territorial institutions. The African Affairs Board is to include three Africans in its member- ship as well as the three Secretaries for Native Affairs, and in addition to the safeguarding of African interests its periodic meetings will provide a forum for the discussion of common problems, leading, we believe, to mutual understanding and a closer approximation of the native policy of all three territories with results which cannot fail to be of benefit to Africans.

The Minister for African Interests

18. In the scheme of safeguards we attach special importance to the position of the Minister for African Interests who would also be Chairman of the African Affairs Board. The definition of his status and functions was a signal example of the spirit which animated the Conference in seeking means whereby, without com- promise of principle, the proposals might satisfy the apparently conflicting require-

ments imposed 364 of 58 obtaining acceptance in different quarters: 364 of 587

283

ERS

6 Page 365 of 587.

Page 365. functions of the Board 'would provide a means of ensuring that legislation detri- mental to African interests should not be enacted, the United Kingdom members felt that it was no less important to have a similar procedure with regard to the executive actions of the federal authority. This could only be attained by asso- ciating the Chairman in some way with the activities of the federal Cabinet. It seemed that the United Kingdom Government's responsibilities would best be satis- fied if the Chairman were inside the Cabinet. He would thereby obtain a full knowledge and understanding of proposals discussed by the departmental Ministers and would be in a position to make his views known before decisions were reached. The Conference therefore decided to recommend that there should be a Minister for African Interests in the Cabinet. He would have no departments operating under him, and his independence would be secured by the provisions for his appointment and dismissal. He would admittedly occupy an anomalous position in a body which in other respects would conform to the usual type of Cabinet Government; but the Conference, after thorough discussion, agreed to accept the anomaly as justified and inevitable in the circumstances. In the recommendations which were eventually adopted everything possible was done to assimilate the Minister's position, con- sistently with his independence, to the normal requirements of parliamentary govern- ment by ensuring that he should be a member of the Legislature. It should be emphasised that as a member of the Cabinet it would be his duty, subject to his special responsibilities for African interests, to co-operate with, and assist his Cabinet colleagues in the conduct of the affairs of the federal Government. It is proposed that he should be drawn from the number of members appointed to the Legislature to represent African interests, i.e., from those who are nominated for the purpose. This arrangement would avoid the difficulty which would arise if an elected member, responsible to his constituents, were appointed to the post. In the form of closer association of the Central African territories which we have recom- mended we can think of no more effective device for the protection of African interests, and we are confident that the efficacy of our proposal will be generally recognised.

19. In conclusion we wish once again to record our sense of the urgent need for bringing the Central African territories by some effective constitutional link into closer association with one another. Our recommendations offer, we believe, a solid framework for the purpose, and we think that they will be found to be in the best interests of the peoples of British Central Africa. It is of great significance that they have been unanimously agreed to by responsible officials of the three terri- tories who will have the duty of operating them if the new constitution is brought into being, and some of whom will be called upon to explain and commend them to the African inhabitants. It is the earnest hope of all members of the Conference that as soon as may be after receipt of the Report all four Governments will be able to agree to the simultaneous publication of the Report for general information and to commend it for the favourable consideration of all the peoples concerned as a fair and workable scheme. We believe in particular that nothing is better calculated to secure favourable reception of the Report by Africans than to have this measure of support from His Majesty's Government and we trust that their support may readily be made known. His Majesty's Government in the United Kingdom, like the other Governments, are committed to consultation with the peoples concerned before arriving at final decisions, but this is no bar to their commending the Report for favourable consideration.

Commonwealth Relations Office,

31st March, 1951.