CAB129-52 — Page 125

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Cmd. 8234.

§ Cmd. 8235.

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Southern Rhodesia and the northern Territories still remained but, though important, they were felt to relate largely to method and timing: theagimate objectives of all three Goverments were broadly the same, namely, the economic, social and political advancement of the Africans in partnership with the Europeans. The officials noted that Southern Rhodesia spent more on certain services for Africans than did Northern Rhodesia or Nyasaland. They recognised the existence and importance of African opposition in Northern Rhodesia and Nyasaland, but believed that the judgment of African opinion would in the last resort turn on the form which a scheme of closer association might take. (Such a scheme is set forth in detail for the first time in the present paper.) They considered that with the growth of population, both European and African, since 1938, and with the material and political progress of the Territories, there should now be no difficulty in working effectively a scheme of closer association. Moreover, political advance in Northern Rhodesia and Nyasaland had narrowed the gap between the political institutions of Southern Rhodesia on the one hand and the northern Territories on the other. Finally, the resources of the three Territories should now be fully adequate to support a scheme of closer association.

5. The officials discussed various forms of closer association. They noted the view of those closely concerned with the work of the Central African Council that an advisory body could by itself do nothing further of value to promote collaboration between the in- dividual Governments. They reviewed the idea of amalgamation (which had found favour for many years in Southern Rhodesia and elsewhere), and rejected it because, although it had many intrinsic merits, it stood so little chance of general acceptance that, if only for that reason, it could not be recommended. They also rejected the idea of a "League", whereby the three Governments would delegate certain functions to a body appointed by themselves, on the grounds that it would be likely to produce friction and deadlock and that it equally stood little chance of general acceptance. They then recommended a scheme, which they discussed at length, for a federation under which the central Government would have certain specified powers, the remainder being left with the territorial Govern- ments. The constitution that they recommended would include special safeguards for African interests.

6. The officials' report was commended as a basis for discussion by all four Governments to the careful consideration of public opinion, His Majesty's Government describing it as "a constructive approach to the problem ", and it was announced that no decision would be taken on their proposals until there had been full discussion and time for opinion to crystallise. The then Secretaries of State for Commonwealth Relations and the Colonies (the Rt. Hon. P. C. Gordon- Walker, M.P., and the Rt. Hon. James Griffiths, M.P.) visited Africa in August and September of 1951 to take part in discussions with representatives of all communities. Their tour concluded with a Con- ference which met at Victoria Falls in September. The nature and conclusions of that Conference are set out in a communiqué issued on the 21st September, and reproduced as Annex II. It was con- templated that, after further discussion within each territory and exchanges of views between the four Governments, there should be a further Conference in 1952.