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T H I S D O C U M E N T IS T H E P R O P E R T Y O F H E R B R I T A N N I C
Printed
for the Cabinet.
September
1956
SECRET
C o p y No3
9
C M . (56)
64th Conclusions
CABINET
CONCLUSIONS
of a Meeting
on Tuesday,
of the Cabinet
11th September,
held at 10 Downing
1956, at 3 p.m.
Street,
S.W. I,
Present: T h e R i g h t H o n . Sir A N T H O N Y E D E N , M . P . , P r i m e M i n i s t e r . The
Most
Hon.
SALISBURY,
Council.
The
Right
the
Lord
Hon.
of t h e
T h e R i g h t H o n . R. A . BUTLER, M . P . ,
L o r d P r i v y Seal.
MACMILLAN,
T h e Right H o n . the VISCOUNT KILMUIR,
MARQUESS OF
President
HAROLD
M . P . , C h a n c e l l o r of t h e E x c h e q u e r .
T h e Right H o n . SELWYN LLOYD, Q.C.,
M . P . , S e c r e t a r y of S t a t e for F o r e i g n
Affairs.
The
Right
Hon.
JAMES STUART, M . P . ,
S e c r e t a r y of S t a t e for S c o t l a n d .
The
Right
Hon.
ALAN
M.P.,
Secretary
Colonies.
The
Right
Hon.
GWILYM
LLOYD-
GEORGE, M . P . , Secretary of S t a t e for
the H o m e Department a n d Minister
for W e l s h Affairs.
The
Right
Hon.
the
EARL
OF H O M E ,
S e c r e t a r y of S t a t e f o r C o m m o n w e a l t h
Relations.
LENNOX-BOYD,
T h e R i g h t H o n . Sir W A L T E R M O N C K T O N ,
State
for the
DUNCAN
SANDYS,
T h e R i g h t H o n . PETER THORNEYCROFT,
M . P . , M i n i s t e r of H o u s i n g a n d L o c a l
Government.
M . P . , P r e s i d e n t of t h e B o a r d of T r a d e .
The
The
Right
of
Lord Chancellor.
Hon.
Right
Hon.
D.
HEATHCOAT
A M O R Y , M . P . , M i n i s t e r of A g r i c u l ­
ture, Fisheries a n d F o o d .
The
Right
Minister
Service.
Hon.
of
IAIN M A C L E O D , M . P . ,
Labour
a n d National
The
Hon.
Right
HEPBURN, M.P.,
Q.C., M . P . , M i n i s t e r of D e f e n c e .
T h e R i g h t H o n . Sir D A V I D ECCLES, M . P . ,
M i n i s t e r of E d u c a t i o n .
T h e R i g h t H o n . the EARL OF SELKIRK,
C h a n c e l l o r of t h e D u c h y of L a n c a s t e r .
PATRICK
BUCHAN-
M i n i s t e r of W o r k s .
T h e following w e r e also p r e s e n t :
The
Right
Hon.
the
VISCOUNT
SHAM, Q . C . , F i r s t
A d m i r a l t y (Item 4).
The
Right
Hon.
NIGEL
Lord
the
The
Right
Hon.
ANTONY HEAD, M . P . ,
S e c r e t a r y of S t a t e f o r W a r (Item
4).
T h e Right H o n . EDWARD HEATH, M . P . ,
BIRCH,
S e c r e t a r y of S t a t e for A i r (Item
50547-2
HAIL-
of
M.P.,
4).
P a r l i a m e n t a r y Secretary, T r e a s u r y .
r
9 9
3
da
CONTENTS :
Minute No.
Subject
...
...
1
Parliament
2
The Gold Coast
3
Bechuanaland Protectorate
5
4
Suez Canal
5
...
...
Page
...
...
3
...
3
i3
Parliament.
1. T h e C a b i n e t w e r e i n f o r m e d of t h e a r r a n g e m e n t s p r o p o s e d
for t h e m e e t i n g of P a r l i a m e n t o n 12th t o 14th S e p t e m b e r .
T h e H o u s e of C o m m o n s w o u l d d e b a t e t h e S u e z s i t u a t i o n o n
12th a n d 13th S e p t e m b e r . T h e G o v e r n m e n t s p o k e s m e n w o u l d b e t h e
P r i m e M i n i s t e r a n d t h e F o r e i g n S e c r e t a r y . T h e d e b a t e o n t h e first
d a y w o u l d b e h e l d o n a m o t i o n for t h e a d j o u r n m e n t : this w o u l d
leave it o p e n for t h e F o r e i g n S e c r e t a r y t o m o v e , a t t h e o u t s e t of t h e
s e c o n d d a y ' s d e b a t e , a n a p p r o p r i a t e m o t i o n of confidence in t h e
G o v e r n m e n t s h a n d l i n g of t h e s i t u a t i o n .
O n t h e 14th S e p t e m b e r the H o u s e of C o m m o n s w o u l d h o l d a
d e b a t e o n C y p r u s , in w h i c h the G o v e r n m e n t s p o k e s m e n w o u l d b e
t h e C o l o n i a l S e c r e t a r y a n d t h e M i n i s t e r of S t a t e for C o l o n i a l Affairs.
I n t h e H o u s e of L o r d s t h e L o r d P r e s i d e n t w o u l d o p e n t h e d e b a t e
o n t h e Suez s i t u a t i o n o n 12th S e p t e m b e r a n d the r e p l y t o t h e first
d a y ' s d e b a t e w o u l d be m a d e b y t h e L o r d C h a n c e l l o r . T h e M i n i s t e r
of S t a t e for F o r e i g n Affairs ( L o r d R e a d i n g ) w o u l d be t h e G o v e r n ­
m e n t ' s s p o k e s m a n if the d e b a t e w e r e to c o n t i n u e i n t o a s e c o n d d a y .
T h e r e w o u l d also b e a d e b a t e o n C y p r u s in w h i c h t h e G o v e r n m e n t
s p o k e s m a n w o u l d b e t h e P a r l i a m e n t a r y U n d e r - S e c r e t a r y of S t a t e for
the Colonies.
2. T h e C a b i n e t h a d before t h e m a m e m o r a n d u m by t h e C o l o n i a l
S e c r e t a r y ( C P . (56) 204) r e c o m m e n d i n g t h a t t h e r e m a i n i n g steps
s h o u l d n o w b e t a k e n t o a c c o r d full s e l f - g o v e r n m e n t t o t h e G o l d C o a s t
Reference:
u n d e r t h e n e w n a m e of G h a n a a n d t h a t the n e c e s s a r y legislation for
C.M.(56) 32nd this p u r p o s e s h o u l d b e p r e p a r e d for i n t r o d u c t i o n in t h e f o r t h c o m i n g
Conclusions,
session of P a r l i a m e n t .
The Gold
Coast.
(Previous
M i n u t e 8.)
The Colonial Secretary recalled t h a t , with t h e C a b i n e t ' s a p p r o v a l ,
h e h a d a n n o u n c e d in P a r l i a m e n t o n 11th M a y t h a t t h e U n i t e d
K i n g d o m G o v e r n m e n t w o u l d be p r e p a r e d to p r o m o t e t h e final stages
of c o n s t i t u t i o n a l a d v a n c e in t h e G o l d C o a s t after t h e p e o p l e h a d b e e n
g i v e n t h e o p p o r t u n i t y in a g e n e r a l election to e x p r e s s their views o n
t h e p r o p o s e d c o n s t i t u t i o n a n d a m o t i o n calling for i n d e p e n d e n c e
h a d b e e n p a s s e d b y a r e a s o n a b l e m a j o r i t y in the n e w legislature. B o t h
of these r e q u i r e m e n t s h a d n o w b e e n fulfilled a n d , a l t h o u g h t h e
O p p o s i t i o n P a r t i e s in t h e G o l d C o a s t m u s t e r i n g less t h a n o n e - t h i r d
of "the seats in t h e legislature, h a d r e f r a i n e d from v o t i n g o n the
m o t i o n for s e l f - g o v e r n m e n t , this w a s n o t a sufficient r e a s o n for
m o d i f y i n g t h e policy t o w h i c h the U n i t e d K i n g d o m G o v e r n m e n t w e r e
c o m m i t t e d . E v e r y effort h a d been m a d e to m e e t t h e wishes of t h e
O p p o s i t i o n P a r t i e s b y i n t r o d u c i n g t h e g r e a t e s t possible m e a s u r e of
regional devolution into the new constitutional arrangements, but
it w o u l d n o t h a v e b e e n p r a c t i c a b l e to h a v e g o n e f u r t h e r a n d devised
a federal f o r m of c o n s t i t u t i o n for t h e G o l d C o a s t .
Given the
s a f e g u a r d s p r o v i d e d b y t h e a r r a n g e m e n t s for r e g i o n a l d e v o l u t i o n ,
t h e right c o u r s e for t h e dissident Parties w a s t o f o r m themselves i n t o
a n effective P a r l i a m e n t a r y O p p o s i t i o n a n d to a t t e m p t t o m a k e the
c o n s t i t u t i o n w o r k . H e h a d e m p h a s i s e d this to a g r o u p of O p p o s i t i o n
l e a d e r s f r o m t h e G o l d C o a s t n o w in L o n d o n .
T h e r e w e r e t w o f u r t h e r p o i n t s . F i r s t , as r e g a r d s c o r r u p t i o n in
p u b l i c life, t h e P r i m e M i n i s t e r (Dr. N k r u m a h ) h a d a n n o u n c e d t h a t the
r e p o r t of the r e c e n t C o m m i s s i o n of E n q u i r y i n t o irregularities in t h e
finances of t h e C o c o a P u r c h a s i n g C o m p a n y w o u l d b e p u b l i s h e d in
full a n d t h a t steps w o u l d b e t a k e n t o b r i n g the finances of s u c h b o d i e s
u n d e r closer P a r l i a m e n t a r y c o n t r o l . S e c o n d l y , as r e g a r d s T o g o l a n d ,
t h e i n h a b i t a n t s p r o p o s e d t o a p p e a l to t h e U n i t e d N a t i o n s against t h e
t e r m i n a t i o n of t r u s t e e s t a t u s for their t e r r i t o r y . B u t t h e T r u s t e e s h i p
Council had, by a virtually u n a n i m o u s decision, already decided to
a p p r o v e t h e t e r m i n a t i o n of t h e t r u s t e e s h i p a n d t h e r e w a s little d o u b t
t h a t their r e c o m m e n d a t i o n w o u l d b e e n d o r s e d b y t h e G e n e r a l
Assembly.
50547-2
B 2
aj
ij
H e therefore p r o p o s e d t o issue in t h e following w e e k a p u b l i c
s t a t e m e n t on t h e a d v a n c e of t h e G o l d C o a s t t o full self-government
w i t h effect f r o m 6 t h M a r c h , 1956, a n d t o i n t r o d u c e t h e necessary
legislation in t h e f o r t h c o m i n g session. T h e risk m u s t b e a c c e p t e d
t h a t this a n n o u n c e m e n t m i g h t lead t o d i s t u r b a n c e s in the G o l d C o a s t ;
b u t t h e r e was a c e r t a i n t y of m u c h m o r e serious d i s o r d e r if the
G o v e r n m e n t failed to fulfil their u n d e r t a k i n g s .
I n discussion t h e following p o i n t s w e r e m a d e : —
(a) The Minister
of Housing
said t h a t t h e i n t r o d u c t i o n of this
u n i t a r y c o n s t i t u t i o n w o u l d h a v e t h e effect of placing t h e tribal
i n h a b i t a n t s of t h e C e n t r a l a n d N o r t h e r n T e r r i t o r i e s of the G o l d C o a s t
u n d e r t h e c o n t r o l of t h e m o r e a d v a n c e d a n d e d u c a t e d m e r c h a n t
g r o u p s in the c o a s t a l a r e a s . M o r e o v e r , it w a s p r o p o s e d t o w i t h d r a w
f r o m the N o r t h e r n T e r r i t o r i e s w i t h o u t their c o n s e n t the p r o t e c t o r a t e
s t a t u s w h i c h t h e y n o w enjoyed. T h i s w a s n o t a satisfactory discharge
of o u r responsibilities.
H e s t r o n g l y u r g e d t h a t , e v e n at this
late stage, further c o n s i d e r a t i o n s h o u l d b e given t o the possibility of
a d o p t i n g a federal s y s t e m .
The Colonial Secretary
said t h a t h e w a s satisfied t h a t , b o t h o n
e c o n o m i c and financial g r o u n d s , t h e G o l d C o a s t , with five million
i n h a b i t a n t s , w a s t o o small to b e d i v i d e d i n t o t h e five s e p a r a t e u n i t s
w h i c h a federal system w o u l d entail. N o r w a s t h e r e any p r a c t i c a b l e
a l t e r n a t i v e b u t t o a b r o g a t e t h e p r o t e c t o r a t e treaties w h e n , u n d e r a n y
s y s t e m of self-government, w e s h o u l d b e u n a b l e t o fulfil o u r
obligations u n d e r t h e m . T h e Chiefs c o n c e r n e d h a d seen t h a t this
w a s inevitable, a n d t h e p r o v i s i o n s in t h e c o n s t i t u t i o n for d e v o l u t i o n
of a u t h o r i t y c o n t e m p l a t e d a H o u s e of Chiefs in t h e N o r t h e r n
Territory.
The Commonwealth
Secretary e n d o r s e d t h e views expressed b y
the C o l o n i a l Secretary o n these p o i n t s .
Discussion s h o w e d t h a t it w a s t h e g e n e r a l view of t h e C a b i n e t
t h a t , h a v i n g r e g a r d t o t h e u n d e r t a k i n g s a l r e a d y given, there w a s n o w
n o a l t e r n a t i v e b u t t o p r o c e e d w i t h t h e i n t r o d u c t i o n of t h e unitary­
c o n s t i t u t i o n p r o p o s e d for t h e G o l d C o a s t .
(b) I t w o u l d , h o w e v e r , b e n e c e s s a r y t o e x a m i n e the i m p l i c a t i o n s
w h i c h t h e w i t h d r a w a l of p r o t e c t o r a t e s t a t u s f r o m t h e N o r t h e r n
T e r r i t o r i e s in t h e G o l d C o a s t w o u l d h a v e for o u r policy in N o r t h e r n
R h o d e s i a a n d N y a s a l a n d . T h e G o v e r n m e n t s of N o r t h e r n R h o d e s i a
a n d N y a s a l a n d h a d b e e n assured t h a t w e c o u l d n o t w i t h d r a w
p r o t e c t o r a t e status f r o m t h e n a t i v e p o p u l a t i o n s in their territories
w h i c h enjoyed it. I t w o u l d n o w b e n e c e s s a r y to satisfy these
G o v e r n m e n t s t h a t a policy in r e g a r d t o p r o t e c t o r a t e s w a s being
followed w h i c h w a s n o t i n c o n s i s t e n t as b e t w e e n o n e colonial t e r r i t o r y
and another.
(c) The Chancellor of the Exchequer
said t h a t it should b e m a d e
clear t o t h e G o l d C o a s t G o v e r n m e n t t h a t t h e p r o p o s e d a d v a n c e to
self-government s t a t u s w o u l d n o t c a r r y w i t h it a claim t o a n y funds
of t h e Colonial D e v e l o p m e n t a n d W e l f a r e C o r p o r a t i o n .
Moreover,
G o l d C o a s t b a l a n c e s n o w h e l d in L o n d o n a m o u n t e d to n e a r l y £100
millions. I n view of t h e s t r a i n s w h i c h sterling m u s t b e e x p e c t e d
t o suffer in the p e r i o d i m m e d i a t e l y a h e a d , it m i g h t be d e s i r a b l e to
defer t h e d a t e o n which full s e l f - g o v e r n m e n t w o u l d c o m e i n t o effect
in case this m i g h t involve t h e risk of t h e s e b a l a n c e s being w i t h d r a w n
for i n v e s t m e n t elsewhere.
O n this, h o w e v e r , it w a s p o i n t e d o u t t h a t t h e . G o l d C o a s t
a u t h o r i t i e s were a l r e a d y free t o w i t h d r a w their b a l a n c e s from
L o n d o n , s h o u l d they so wish, a n d it w a s a g r e e d t h a t the n e x t stage
of c o n s t i t u t i o n a l a d v a n c e c o u l d n o t b e deferred on t h a t a c c o u n t .
The Cabinet—
(1) A p p r o v e d t h e p r o p o s a l s in p a r a g r a p h 18 of C P . (56) 204.
(2) I n v i t e d t h e C o m m o n w e a l t h S e c r e t a r y a n d t h e C o l o n i a l
S e c r e t a r y , in c o n s u l t a t i o n , t o give "further c o n s i d e r a t i o n
t o t h e i m p l i c a t i o n s for C o m m o n w e a l t h policy of t h e
p o i n t r e c o r d e d in p a r a g r a p h (b) a b o v e .
(Previous
3. T h e C a b i n e t h a d before t h e m a m e m o r a n d u m b y t h e i
C o m m o n w e a l t h S e c r e t a r y ( C P . (56) 206) o n t h e p r o s p e c t s of r e s o l v i n g
t h e p r o b l e m of t h e succession t o the Chieftainship of the B a m a n g w a t o
Reference:
tribe.
Bechuanaland
Protectorate.
C M . (56) 6 0 t h
Conclusions,
M i n u t e 6.)
The Commonwealth
Secretary
said t h a t b o t h Seretse K h a m a
a n d T s h e k e d i K h a m a h a d d e c i d e d t o r e n o u n c e their claims t o t h e
C h i e f t a i n s h i p a n d w e r e p r e p a r e d t o s u p p o r t R a s e b o l a i as A f r i c a n
A u t h o r i t y . T h e y w i s h e d t o b e allowed t o r e t u r n t o t h e B a m a n g w a t o
R e s e r v e w i t h t h e r i g h t as free citizens t o serve t h e i r p e o p l e i n a n y
c a p a c i t y t o w h i c h t h e y m i g h t b e elected. T h e y h a d b o t h signed a
s t a t e m e n t t o t h a t effect.
H e w a s d i s p o s e d t o a c c e p t these a s s u r a n c e s , in t h e h o p e t h a t
they w o u l d b r i n g to a n e n d t h e t r o u b l e s o v e r the succession, a n d t o
a l l o w Seretse a n d T s h e k e d i to r e t u r n t o the R e s e r v e . It w a s of
c o u r s e c o n c e i v a b l e t h a t t h e p r e s e n c e of Seretse in t h e R e s e r v e w o u l d
excite a s p o n t a n e o u s d e m o n s t r a t i o n in f a v o u r of his election as Chief
b u t , as T s h e k e d i w o u l d b e o p p o s e d t o this, t h e risk c o u l d b e
discounted.
Subject t o t h e a p p r o v a l of his colleagues he p r o p o s e d , t h e r e f o r e ,
t h a t Seretse's r e n u n c i a t i o n s h o u l d b e m a d e k n o w n t o t h e T r i b e a n d
a n n o u n c e d in L o n d o n d u r i n g t h e c u r r e n t m o n t h . Seretse himself
w o u l d t h e n b e a l l o w e d t o r e t u r n t o t h e R e s e r v e in O c t o b e r a n d a n
A d v i s o r y C o u n c i l for t h e T r i b e , o n w h i c h b o t h Seretse a n d T s h e k e d i
w o u l d b e free to serve, if called u p o n to d o so, w o u l d b e set u p .
T h e C a b i n e t agreed t h a t t h e a s s u r a n c e s w h i c h h a d b e e n given
offered a r e a s o n a b l e p r o s p e c t of a s e t t l e m e n t of t h i s q u e s t i o n .
The
risks i n v o l v e d m i g h t b e r e d u c e d if Seretse, o n r e t u r n to the R e s e r v e ,
c o n t i n u e d to receive, w h i l e of g o o d b e h a v i o u r , t h e a l l o w a n c e w h i c h
h a d b e e n p a i d t o h i m in L o n d o n , a n d it w a s a g r e e d t h a t this p o i n t
should be further considered.
The Cabinet—
A p p r o v e d , subject t o the f u r t h e r p o i n t
discussion, t h e p r o p o s a l s in C P . (56) 206.
Suez C a n a l .
(Previous
Reference:
C M . (56) 63rd
Conclusions.)
made
in
their
4. The Foreign Secretary
said t h a t M r . M e n z i e s ' mission to
C a i r o h a d at least p r o d u c e d a c l e a r - c u t result. T h e E g y p t i a n
G o v e r n m e n t h a d flatly r e j e c t e d t h e p r o p o s a l s for i n t e r n a t i o n a l c o n t r o l
of t h e Suez C a n a l w h i c h h a d b e e n p u t t o t h e m b y M r . M e n z i e s '
C o m m i t t e e o n behalf of e i g h t e e n of t h e n a t i o n s r e p r e s e n t e d at the
L o n d o n C o n f e r e n c e . T h e P r i m e M i n i s t e r a n d he h a d t h e r e f o r e b e e n
c o n s i d e r i n g with t h e G o v e r n m e n t s of t h e U n i t e d States a n d F r a n c e
t h r e e possible c o u r s e s w h i c h m i g h t n o w b e t a k e n . T h e first w a s t o
p r o c e e d at o n c e w i t h m i l i t a r y a c t i o n to r e s t o r e the p o s i t i o n . T o this
the U n i t e d States G o v e r n m e n t w e r e s t r o n g l y o p p o s e d . T h e s e c o n d
w a s t o p u t f o r w a r d in t h e Security C o u n c i l a r e s o l u t i o n s u p p o r t i n g
the p r o p o s a l s e m a n a t i n g f r o m t h e L o n d o n C o n f e r e n c e a n d calling o n
E g y p t to r e s t o r e to t h e m a r i t i m e P o w e r s their r i g h t s u n d e r t h e
C o n v e n t i o n of 1888. T h e U n i t e d States G o v e r n m e n t w e r e n o w
inclined to t h i n k t h a t w e s h o u l d be on w e a k g r o u n d in p u t t i n g f o r w a r d
s u c h a r e s o l u t i o n at this s t a g e . T h e y f a v o u r e d t h e third c o u r s e of
p u t t i n g into o p e r a t i o n t h e p l a n , w h i c h t h e y h a d n o w e l a b o r a t e d , for
establishing a n o r g a n i s a t i o n to e n a b l e t h e p r i n c i p a l users of t h e C a n a l
t o exercise their rights u n d e r t h e 1888 C o n v e n t i o n . It it w a s t o be
fully effective, this p l a n w o u l d r e q u i r e t h e c o - o p e r a t i o n of t h e
E g y p t i a n a u t h o r i t i e s ; b u t it h a d n o w b e e n confirmed t h a t t h e
A m e r i c a n p r o p o s a l was, n o t t o e n t e r i n t o n e g o t i a t i o n s w i t h t h e
E g y p t i a n s , b u t to call o n t h e m to p r o v i d e t h e necessary facilities.
T h e essence of t h e p l a n w a s t h a t t h e p r i n c i p a l users s h o u l d t o g e t h e r
t a k e positive a c t i o n to assert t h e i r r i g h t s . It w o u l d , m o r e o v e r , b e a
p a r t of the p l a n t h a t all the c o u n t r i e s m a k i n g u s e of t h e facilities
p r o v i d e d by this o r g a n i s a t i o n w o u l d immediateFy p a y the t r a n s i t d u e s
t o it. T h e p l a n would h a v e t w o g r e a t a d v a n t a g e s : first, it w o u l d
d i r e c t l y involve t h e U n i t e d States in a c t i o n d e s i g n e d to e n f o r c e t h e
rights of users of the C a n a l ; a n d s e c o n d l y , it w o u l d d e p r i v e t h e
E g y p t i a n G o v e r n m e n t of m o r e t h a n 80 p e r cent, of the t r a n s i t d u e s
for p a s s a g e t h r o u g h the C a n a l . T h e E g y p t C o m m i t t e e h a d t h e r e f o r e
d e c i d e d , at their meeting on t h e p r e v i o u s d a y , t h a t w e s h o u l d g o
f o r w a r d with this p l a n if t h e U n i t e d States G o v e r n m e n t w e r e willing
t h a t t h e i r i n t e n t i o n to p a r t i c i p a t e in it s h o u l d b e publicly a n n o u n c e d
in t h e f o r t h c o m i n g d e b a t e in t h e H o u s e of C o m m o n s . I n t h a t e v e n t
w e s h o u l d n o t at this s t a g e s u b m i t a n y r e s o l u t i o n to t h e Security
C o u n c i l : we s h o u l d d o n o m o r e t h a n b r i n g t h e s i t u a t i o n t o t h e n o t i c e
of t h e C h a i r m a n of the C o u n c i l u n d e r A r t i c l e 35 of t h e U n i t e d
Nations Charter.
I n discussion it was r e c o g n i s e d t h a t a n o r g a n i s a t i o n of users,
o p e r a t i n g from outside E g y p t , w o u l d find g r e a t p r a c t i c a l difficulty in
o p e r a t i n g the m o v e m e n t of ships t h r o u g h t h e C a n a l . I t s h o u l d be
a b l e t o o r g a n i s e a service of pilots, w o r k i n g f r o m w a r s h i p s s t a t i o n e d
at e i t h e r e n d of t h e C a n a l ; b u t it w o u l d h a v e n o c o n t r o l over the
b r i d g e s a n d t h e signalling system a l o n g t h e C a n a l . It w a s likely,
t h e r e f o r e , t h a t this a t t e m p t t o assert the u s e r s ' rights u n d e r the
C o n v e n t i o n w o u l d p r o d u c e a c o n f u s e d s i t u a t i o n in the C a n a l , even
if t h e E g y p t i a n s refrained f r o m t a k i n g forcible a c t i o n to p r e v e n t the
p a s s a g e of ships o p e r a t e d by pilots acting o n behalf of t h e u s e r s '
o r g a n i s a t i o n . I t w a s , h o w e v e r , t h e view of the C a b i n e t t h a t these
p r a c t i c a l difficulties were o u t w e i g h e d b y t h e g r e a t a d v a n t a g e t h a t
t h e U n i t e d States would b e p u b l i c l y i n v o l v e d in a p l a n of positive
a c t i o n t o enforce the u s e r s ' rights u n d e r t h e C o n v e n t i o n .
If t h e
p l a n s u c c e e d e d , Colonel N a s s e r ' s original a c t i o n w o u l d b e largely
f r u s t r a t e d : if it failed, b y r e a s o n of E g y p t i a n o b s t r u c t i o n , the
m a r i t i m e P o w e r s w o u l d h a v e s t r o n g e r g r o u n d s either for a n a p p e a l
t o t h e Security C o u n c i l or for r e c o u r s e t o m o r e forcible m e a s u r e s .
D i s c u s s i o n t h e n t u r n e d o n t h e q u e s t i o n w h e t h e r a n y reference
s n o u l d b e m a d e t o the Security C o u n c i l at this stage. T h e C a b i n e t
w e r e i n f o r m e d t h a t the H i g h C o m m i s s i o n e r s of t h e older C o m m o n ­
w e a l t h c o u n t r i e s , in their r e c e n t discussions w i t h t h e C o m m o n w e a l t h
S e c r e t a r y , h a d expressed t h e view t h a t r e c o u r s e s h o u l d n o w b e h a d
t o t h e m a c h i n e r y of the U n i t e d N a t i o n s . It w a s likely t h a t this
view w o u l d be reflected i n the f o r t h c o m i n g d e b a t e in t h e H o u s e of
C o m m o n s . The Foreign Secretary
said t h a t , if t h e U n i t e d States
G o v e r n m e n t w e r e willing t h a t t h e P r i m e M i n i s t e r s h o u l d a n n o u n c e in
t h e H o u s e of C o m m o n s o n the following d a y the p l a n for t h e e s t a b ­
l i s h m e n t of a n o r g a n i s a t i o n to e n a b l e t h e users of t h e C a n a l to assert
their rights u n d e r the 1888 C o n v e n t i o n , h e w o u l d be i n f a v o u r of
s e n d i n g s i m u l t a n e o u s l y to the C h a i r m a n of t h e Security C o u n c i l a
s i m p l e notification of the s i t u a t i o n in t h e t e r m s w h i c h h a d b e e n agreed
with the French Government.
T h i s notification w o u l d b e m a d e
u n d e r A r t i c l e 35 of the U n i t e d N a t i o n s C h a r t e r . It need n o t l e a d
t o a n y i m m e d i a t e d e b a t e in the Security C o u n c i l , n o r w o u l d it
p r e c l u d e the c o n t i n u a n c e of n e g o t i a t i o n s b e t w e e n t h e p a r t i e s u n d e r
t h e t e r m s of A r t i c l e 33 of t h e C h a r t e r . I t m i g h t , h o w e v e r , b e to o u r
a d v a n t a g e t o h a v e m a d e this p r e l i m i n a r y notification if it b e c a m e
n e c e s s a r y at a l a t e r stage t o bring t h e issue before t h e C o u n c i l u n d e r
A r t i c l e 37 of t h e C h a r t e r .
The Prime Minister, s u m m i n g u p this p a r t of t h e discussion,
said t h a t it w a s e v i d e n t t h a t t h e C a b i n e t w e r e in f a v o u r of
p r o c e e d i n g w i t h t h e p l a n for e s t a b l i s h i n g a n Organisation t o
e n a b l e t h e p r i n c i p a l users of t h e C a n a l t o exercise their r i g h t s
u n d e r t h e 1888 C o n v e n t i o n , p r o v i d e d t h a t t h e U n i t e d States
G o v e r n m e n t w e r e willing t h a t this p r o j e c t s h o u l d b e a n n o u n c e d
in the f o r t h c o m i n g d e b a t e i n t h e H o u s e of C o m m o n s a n d b r o u g h t
into operation without delay; and that the Cabinet were further
a g r e e d t h a t in this e v e n t , t h e s i t u a t i o n s h o u l d b e f o r m a l l y notified
t o t h e C h a i r m a n of t h e Security C o u n c i l u n d e r A r t i c l e 35 of t h e
United Nations Charter.
Discussion then turned on
subsequently have to be taken.
the
further
steps
which
might
The Chancellor
of the Exchequer
said t h a t , in his j u d g m e n t , it
w a s unlikely t h a t effective i n t e r n a t i o n a l c o n t r o l o v e r t h e C a n a l c o u l d
b e s e c u r e d w i t h o u t t h e u s e of force. H e r e g a r d e d t h e e s t a b l i s h m e n t
of this u s e r s ' o r g a n i s a t i o n as a s t e p t o w a r d s t h e u l t i m a t e u s e of force.
It w o u l d n o t in itself p r o v i d e a s o l u t i o n . It w a s v e r y d o u b t f u l
w h e t h e r t h e C a n a l c o u l d be o p e r a t e d effectively u n d e r s u c h a n
a r r a n g e m e n t as t h i s ; a n d it s e e m e d c e r t a i n t h a t t h e E g y p t i a n s could
n o t a c c e p t it as a p e r m a n e n t s y s t e m . It s h o u l d , h o w e v e r , s e r v e t o
b r i n g the issue t o a h e a d . T h i s w a s of g r e a t i m p o r t a n c e f r o m t h e
p o i n t of view of t h e n a t i o n a l e c o n o m y . If w e c o u l d achieve a q u i c k
a n d satisfactory s e t t l e m e n t of this issue, c o n f i d e n c e i n sterling w o u l d
b e r e s t o r e d ; b u t , if a s e t t l e m e n t w a s long d e l a y e d , t h e cost a n d t h e
u n c e r t a i n t y w o u l d u n d e r m i n e o u r financial p o s i t i o n . H e t h e r e f o r e
h o p e d t h a t P a r l i a m e n t c o u l d b e p e r s u a d e d t o give t h e G o v e r n m e n t
a m a n d a t e t o t a k e all n e c e s s a r y steps, i n c l u d i n g t h e u s e of force, t o
s e c u r e a s a t i s f a c t o r y s e t t l e m e n t of this p r o b l e m .
The Minister of Defence said t h a t h e h o p e d t h a t t h e a d o p t i o n of
this p l a n for t h e e s t a b l i s h m e n t of a u s e r s ' o r g a n i s a t i o n w o u l d n o t b e
r e g a r d e d solely as a s t e p t o w a r d s the u s e of force. H e did n o t e x c l u d e
t h e possibility t h a t , if t h e C a n a l c o u l d be b r o u g h t u n d e r effective
i n t e r n a t i o n a l c o n t r o l , t h e p r e s e n t r e g i m e in E g y p t m i g h t b e o v e r ­
t h r o w n b y m e a n s s h o r t of w a r . A n y p r e m a t u r e r e c o u r s e t o force,
especially w i t h o u t t h e s u p p o r t a n d a p p r o v a l of t h e U n i t e d States,
w a s likely t o p r e c i p i t a t e d i s o r d e r t h r o u g h o u t t h e M i d d l e E a s t a n d t o
a l i e n a t e a s u b s t a n t i a l b o d y of p u b l i c o p i n i o n in this c o u n t r y a n d
elsewhere t h r o u g h o u t the world.
The Lord Chancellor
said t h a t it w o u l d be m i s t a k e n t o a s s u m e
t h a t , if force h a d u l t i m a t e l y t o be u s e d , this w o u l d be i n c o n s i s t e n t
w i t h t h e U n i t e d N a t i o n s C h a r t e r . W h i l e t h e d e t a i l e d p r o v i s i o n s of
t h e C h a r t e r p l a c e d all their e m p h a s i s o n t h e p r e s e r v a t i o n of p e a c e ,
it w a s o n e of t h e essential p u r p o s e s of t h e C h a r t e r , as reflected in t h e
p r e a m b l e , t o s e c u r e r e s p e c t for i n t e r n a t i o n a l o b l i g a t i o n s . I t w a s
this w h i c h w a s t h e m a i n issue a t s t a k e in this s i t u a t i o n . W e certainly
h a d a d u t y t o d o o u r u t m o s t t o s e c u r e it b y peaceful m e a n s .
The
e s t a b l i s h m e n t of t h e Users' o r g a n i s a t i o n w o u l d b e a further s t e p , in
a d d i t i o n t o t h o s e Which w e h a d a l r e a d y t a k e n , t o secure a peaceful
settlement. B u t , if it failed, b y r e a s o n of E g y p t i a n o b s t r u c t i o n , h e
believed t h a t w e s h o u l d b e fully justified in h a v i n g r e c o u r s e t o force
a n d s u b m i t t i n g t h e issue s i m u l t a n e o u s l y t o t h e S e c u r i t y C o u n c i l .
The Lord
President
s u p p o r t e d the views e x p r e s s e d by the
L o r d C h a n c e l l o r . I n t h e last r e s o r t , a decision t o use force c o u l d
b e b a s e d e i t h e r o n s o m e i n c i d e n t in t h e Suez C a n a l or o n t h e n e e d
t o enforce r e s p e c t for i n t e r n a t i o n a l o b l i g a t i o n s . H e w o u l d g r e a t l y
prefer t h a t oUr case s h o u l d b e b a s e d o n the s e c o n d of t h o s e g r o u n d s .
It Was on t h a t basis t h a t a n a p p r o a c h s h o u l d b e m a d e , w h e n t h e time
c a m e , t o t h e Security C o u n c i l . If it failed b y r e a s o n of a R u s s i a n
v e t o , it w o u l d b e seen t h a t t h e U n i t e d N a t i o n s w a s i n c a p a b l e of
enforcing t h e p r i n c i p l e s laid d o w n in the p r e a m b l e of t h e C h a r t e r .
W e s h o u l d t h e n b e justified in t a k i n g a c t i o n o u r s e l v e s t o e n f o r c e
r e s p e c t for i n t e r n a t i o n a l o b l i g a t i o n s .
The Lord Privy Seal said t h a t t h e C o n s e r v a t i v e P a r t y in t h e
H o u s e of C o m m o n s w o u l d be r e a d y t o s u p p o r t t h e u s e of force if
t h e y w e r e satisfied t h a t all p r a c t i c a b l e steps h a d b e e n t a k e n , w i t h o u t
success, t o s e c u r e a s e t t l e m e n t b y peaceful m e a n s .
The Prime Minister, s u m m i n g u p this p a r t of t h e discussion,
said t h a t it w a s clear t h a t t h e C a b i n e t w e r e a g r e e d t h a t E g y p f s
d i s r e g a r d of h e r i n t e r n a t i o n a l o b l i g a t i o n s c o u l d n o t b e t o l e r a t e d
a n d t h a t effective i n t e r n a t i o n a l c o n t r o l over t h e Suez C a n a l m u s t
be r e - e s t a b l i s h e d ; t h a t every r e a s o n a b l e effort m u s t b e m a d e t o
secure this objective b y peaceful m e a n s ; b u t t h a t , if these s h o u l d
all fail, w e s h o u l d b e justified in t h e last r e s o r t in u s i n g force t o
r e s t o r e t h e s i t u a t i o n . It w o u l d be a difficult exercise of
judgment to decide when the point h a d been reached w h e n
r e c o u r s e m u s t b e h a d t o forceful m e a s u r e s . I n d e t e r m i n i n g this,
w e s h o u l d weigh, n o t only t h e s t a t e of p u b l i c o p i n i o n in t h e
U n i t e d States, b u t also the views of t h e F r e n c h , w h o w e r e eager
to t a k e firm a c t i o n t o r e s t o r e the s i t u a t i o n a n d w e r e increasingly
i m p a t i e n t of d e l a y .
T h e C a b i n e t t h e n h e l d a brief d i s c u s s i o n o n t h e n a t u r e of t h e
m i l i t a r y o p e r a t i o n s w h i c h m i g h t , if n e e d a r o s e , b e u n d e r t a k e n in the
E a s t e r n M e d i t e r r a n e a n . T h e y w e r e i n f o r m e d of c e r t a i n c h a n g e s in
t h e m i l i t a r y p l a n s . T h e s e h a d b e e n discussed w i t h r e p r e s e n t a t i v e s
of t h e F r e n c h G o v e r n m e n t , w h o w e r e in full a g r e e m e n t w i t h t h e m .
T h e revised p l a n s h a d m u c h g r e a t e r flexibility t h a n t h e earlier
proposals which the Cabinet had considered. They would not
involve so large a r e d e p l o y m e n t of forces, a n d they c o u l d b e b r o u g h t
i n t o effect at s h o r t e r n o t i c e .
T h e C a b i n e t finally discussed t h e r e s o l u t i o n o n t h e Suez s i t u a t i o n
w h i c h h a d b e e n p a s s e d a t the r e c e n t m e e t i n g of t h e T r a d e s U n i o n
C o n g r e s s . It s e e m e d likely t h a t , if in the last r e s o r t it p r o v e d
necessary t o h a v e r e c o u r s e t o forceful m e a s u r e s , this c o u r s e m i g h t be
actively o p p o s e d by s o m e t r a d e u n i o n s . Difficulties w e r e m o s t likely
t o arise in the m i n e s a n d in t h e d o c k s . It w o u l d b e useful if, after
t h e f o r t h c o m i n g d e b a t e in t h e H o u s e of C o m m o n s , t h e M i n i s t e r of
L a b o u r c o u l d a s c e r t a i n confidentially f r o m r e s p o n s i b l e t r a d e u n i o n
l e a d e r s w h a t p r o s p e c t t h e r e w a s of serious i n d u s t r i a l t r o u b l e if military
o p e r a t i o n s h a d t o b e U n d e r t a k e n in t h e E a s t e r n M e d i t e r r a n e a n .
The Cabinet—
(1) I n v i t e d the F o r e i g n Secretary to o b t a i n t h e a g r e e m e n t of t h e
U n i t e d States G o v e r n m e n t t o the a n n o u n c e m e n t , in the
f o r t h c o m i n g d e b a t e in t h e H o u s e of C o m m o n s , of t h e
project for e s t a b l i s h i n g a n o r g a n i s a t i o n t o e n a b l e t h e
p r i n c i p a l users of the Suez C a n a l t o exercise their rights
u n d e r t h e 1888 C o n v e n t i o n .
(2) A g r e e d t h a t , if the a n n o u n c e m e n t
foreshadowed
in
C o n c l u s i o n (1) w e r e m a d e , a f o r m a l c o m m u n i c a t i o n
s h o u l d s i m u l t a n e o u s l y be m a d e t o t h e C h a i r m a n of t h e
Security C o u n c i l notifying h i m , u n d e r A r t i c l e 35 of the
U n i t e d N a t i o n s C h a r t e r , of t h e s i t u a t i o n in t h e Suez
Canal.
(3) T o o k n o t e of t h e revised p l a n s for possible military o p e r a t i o n s
in t h e E a s t e r n M e d i t e r r a n e a n .
(4) T o o k n o t e t h a t t h e P r i m e M i n i s t e r w o u l d a r r a n g e for the
M i n i s t e r of L a b o u r t o a s c e r t a i n at t h e a p p r o p r i a t e stage
f r o m r e s p o n s i b l e t r a d e u n i o n l e a d e r s w h e t h e r it w a s likely
t h a t serious difficulties w o u l d arise w i t h i n i n d u s t r y if it
b e c a m e n e c e s s a r y to u n d e r t a k e m i l i t a r y o p e r a t i o n s in t h e
Eastern Mediterranean.