(c) crown copyright
Catalogue Reference:cab/66/46/20
Image Reference:0001
$
THIS DOCUMENT IS T H E PROPERTY OF HIS BRITANNIC MAJESTY'S GOVERNMENT
Printed
for the War Cabinet.
February 1,944.
SECRET.
Copy No.
W.P. (M) 70.
2%a! February,
1944.
WAR CABINET.
A U S T R A L I A - N E W Z E A L A N D A G R E E M E N T O F 21ST J A N U A R Y , 1944.
MEMORANDUM BY SECRETARY OF STATE FOR D O M I N I O N A F F A I R S .
I have not hitherto circulated to my colleagues any paper with regard to
the recent Canberra Conference between Australia ar^d New Zealand, as it­
seemed premature to do so until the comments of S i r Ronald Cross had been
received. But these have now come in, and I feel t h a t the Cabinet will wish
to have some general assessment of the position, as it has now developed. For
purposes of reference, I attach the text of the Agreement between the Govern­
ments of A u s t r a l i a and New Zealand, signed at Canberra on the 21st J a n u a r y ,
1944 (Annex 1). I also annex a telegram since received from the P r i m e
Ministers of Australia and New Zealand in which they ask for our views on
certain aspects of the conclusions of the Conference (Annex 2).
2. The preliminary history of this conference, so far as we are concerned,
is as follows. At the end of November I heard, indirectly, that the Australian
Government had invited the New Zealand Government to a conference to discuss
political and strategic problems of the Pacific. On the 28th December, Dr. Evatt,
the Australian Minister of E x t e r n a l Affairs, announced publicly the impending
visit to Canberra of Mr. Fraser, the New Zealand P r i m e Minister, for the
Conference. On the 30th December the Australian H i g h Commissioner in London,
at Dr. E v a t t s request, communicated to me an extract from the published state­
ment. This was the first official intimation to us of the Conference from either
Government. On the same day, the United Kingdom Fligh Commissioner in
New Zealand telegraphed that Mr. Fraser had informally asked him to obtain
an indication of our own attitude. I n reply, I telegraphed that our under­
standing here was t h a t this was a preliminary mutual consultation between
Australia and New Zealand in order to define their attitude towards future
arrangements in the South a n d South-West Pacific before consultation with
ourselves a n d other foreign countries concerned; that in view of our close and
direct interest in t h a t area we assumed that the two Governments intended to
discuss these matters with us before foreign countries were brought in, and
that an occasion for such consultation would be provided by the projected P r i m e
Ministers' meeting in London.
3. While the Conference was proceeding, our H i g h Commissioner in
Australia saw the P r i m e Minister of A u s t r a l i a and obtained from h i m his
personal assurance t h a t any announcement of the results of the Conference
would contain a statement that the next step would be discussion with the United
Kingdom Government. In fact, however, the conclusions of the Conference
were published without any such statement being made by the Australian and New
Zealand authorities.
4. After the Conference was over, Sir R. Cross had an interview with
Dr. Evatt. Dr. E v a t t told him t h a t the primary reason for holding the Conference
at this particular time derived from anxiety on the p a r t of A u s t r a l i a and New
Zealand concerning United States attempts at infiltration in non-American
Pacific Islands south of the Equator and " anxiety concerning similar tendencies
m Australia and New Zealand." A second motive, Dr. E v a t t said, derived from
the view held by the Australian and New Zealand Governments that the U n i t e d
Kingdom Government tended '' to concede too easily proposals made by the
[26807]
B
United States of America in relation to the Pacific." As an instance of this,
Dr. Evatt referred to the Cairo Conference and the concessions there made to
China on which, in Dr. E v a t t ' s view, Australia and New Zealand should have"
been consulted beforehand.. Dr. Evatt also informed Sir P . Cross t h a t he was
looking to the United Kingdom to help him to hold the international conference
in the Pacific proposed in Clause 34 of the Agreement, and expressed the view
that, if the United Kingdom would send appropriate Ministers to this conference,
the United States Government would also attend.
5. I feel bound to regard it as unfortunate that the two Governments
should have organised and carried out this Conference and published its
conclusions without any prior consultation with us, having regard to our own
immense interests in the Pacific and the bearing of the Conference on so many
general questions in which we are vitally concerned. I t is, moreover, regrettable
that no clear statement has been made locally to the effect that consultation with
us here at the forthcoming P r i m e Ministers' meeting would be the next step in
the consideration of these questions. Nevertheless, on a broad view. I feel that
the Conference may well have some useful results. From the aspect of defence,
it is clearly to the good t h a t Australia and New Zealand should have stated
publicly t h a t they have a primary interest in the defence of the Pacific. This
declaration may be extremely valuable when we come to arrangements for the
post-war period. Moreover, in advocating the principle of regional collaboration
in the Pacific between all the Governments concerned, they have in effect adopted
the ideas which we had been considering here and which the Colonial Secretary
enunciated in his statement in the House in July last. Finally, so far as the
Conference implies closer sympathy and co-operation between Australia and New
Zealand themselves, t h a t is all to the good. In fact, it seems to me that the
conclusions of the Conference should help to provide a useful basis for further
consideration of these questions, provided that the two Dominion Governments do
not seek to rush prematurely into international discussions.
6. ' The immediate question before the Cabinet is what reply is to be
returned to the telegram from the two Prime Ministers of the 26th J a n u a r y . I
would propose to consult the other Departments principally concerned and
prepare a reply. This must necessarily be of a somewhat interim nature. I take
it that my colleagues will, in particular, wish to discourage the Australian and
New Zealand Governments from taking immediate steps to implement the
proposal in paragraph 11 of the telegram for holding an international conference
in the Pacific about the middle of the year. I take it that we shall not be ready
to take p a r t in such a conference at the present stage. Not only would it be
premature when so many of the territories are still in enemy occupation, but the
local arrangements to be agreed upon in the Pacific can evidently not be considered
in isolation from the other general post-war defence and security arrangements
which still have to be negotiated. Many of these wider issues will need to be dealt
with here and at Washington before the details of any subsidiary regional
arrangements in the Pacific can be agreed upon. I t seems essential that the
Australian and New Zealand Governments should not issue invitations to any
international conference at any rate until after the discussions between the Prime
Ministers here. I should, therefore, if my colleagues agree, propose to indicate
to the P r i m e Ministers of Australia and New Zealand t h a t we should not favour
their taking any further steps in the matter until we have had the opportunity
of personal discussions with them in London. The position is one of some
delicacy. Dr. Evatt is no doubt delighted with the success of the Canberra
meeting and with the lead which Australia and New Zealand have given, and he
will be likely to resent anything that he may regard as grandmotherly restraint
by the mother country. But I feel that we must make our position clear before
he takes any further steps. If the Cabinet approve the broad lines of this reply,
I will, in consultation with the other Government Departments concerned, prepare
a draft for the approval of my colleagues.
Dominions Office, 2nd February, 1944. ANNEX
AGREEMENT
BETWEEN
1.
AUSTRALIA
Z E A L A N D , 21ST J A N U A R Y ,
(TELEGRAPHIC
AND
NEW
1944.
TEXT.)
H I S M a j e s t y ' S G o v e r n m e n t in t h e C o m m o n w e a l t h of A u s t r a l i a a n d H i s
M a j e s t y ' s G o v e r n m e n t i n t h e D o m i n i o n of N e w Z e a l a n d (hereinafter referred
to a s t h e t w o G o v e r n m e n t s ) r e p r e s e n t e d as f o l l o w s : —
T h e G o v e r n m e n t of t h e C o m m o n w e a l t h of A u s t r a l i a by :
T h e R i g h t H o n o u r a b l e J o h n C u r t i n , P r i m e M i n i s t e r of A u s t r a l i a a n d
M i n i s t e r for D e f e n c e ,
T h e H o n o u r a b l e F r a n c i s M i c h a e l F o r d e , M i n i s t e r for. t h e A r m y ,
T h e H o n o u r a b l e J o s e p h B e n e d i c t Chifley, T r e a s u r e r a n d M i n i s t e r
for P o s t - w a r R e c o n s t r u c t i o n ,
T h e E i g h t H o n o u r a b l e H e r b e r t V e r e B v a t t , L L . D . , K.C., A t t o r n e y G e n e r a l a n d M i n i s t e r for E x t e r n a l Affairs,
T h e H o n o u r a b l e J o h n A l b e r t B e a s l e y , M i n i s t e r for S u p p l y a n d
Shipping,
T h e H o n o u r a b l e N o r m a n J o h n Oswald M a k i n , M i n i s t e r for t h e N a v y
a n d M i n i s t e r for M u n i t i o n s ,
T h e H o n o u r a b l e A r t h u r S a m u e l Drakeford, M i n i s t e r for Air a n d
M i n i s t e r for Civil Aviation,
T h e H o n o u r a b l e J o h n J o h n s t o n e D e d m a n , M i n i s t e r for W a r
O r g a n i s a t i o n of I n d u s t r y ,
T h e H o n o u r a b l e E d w a r d J o h n W a r d , M i n i s t e r for T r a n s p o r t a n d
M i n i s t e r for E x t e r n a l Territories,
T h e H o n o u r a b l e T h o m a s George de L a r g i e D a l t o n , H i g h C o m m i s s i o n e r
for A u s t r a l i a i n N e w Z e a l a n d , a n d
T h e G o v e r n m e n t of t h e D o m i n i o n of N e w Z e a l a n d b y :
T h e R i g h t H o n o u r a b l e P e t e r E r a s e r , P r i m e M i n i s t e r of N e w Z e a l a n d ,
M i n i s t e r for E x t e r n a l Affairs a n d M i n i s t e r of I s l a n d Territories,
T h e H o n o u r a b l e F r e d e r i c k J o n e s , M i n i s t e r of D e f e n c e a n d M i n i s t e r
in charge of Civil Aviation,
T h e Honourable Patrick Charles W e b b , Postmaster-General and
M i n i s t e r of L a b o u r , a n d
C a r l A u g u s t B e r e n d s e n , E s q . , C.M.G., H i g h C o m m i s s i o n e r for N e w
Z e a l a n d in A u s t r a l i a :
having m e t in conference at C a n b e r r a from t h e 1 7 t h t o t h e 2 1 s t J a n u a r y , 1944,
a n d desiring to m a i n t a i n a n d s t r e n g t h e n t h e close a n d cordial r e l a t i o n s
b e t w e e n t h e t w o G o v e r n m e n t s do h e r e b y e n t e r i n t o t h i s a g r e e m e n t .
Definition
of Objectives
of Australian-New
Zealand
Co-operation.
1. T h e t w o G o v e r n m e n t s agree t h a t as a p r e l i m i n a r y provision shall b e
m a d e for fuller e x c h a n g e of i n f o r m a t i o n r e g a r d i n g b o t h t h e views of each
G o v e r n m e n t a n d t h e f a c t s in t h e possession of e i t h e r b e a r i n g on m a t t e r s of
common interest.
2. T h e t w o G o v e r n m e n t s give m u t u a l a s s u r a n c e s t h a t on m a t t e r s w h i c h
a p p e a r t o b e of c o m m o n concern each G o v e r n m e n t will so far as possible b e
m a d e a c q u a i n t e d w i t h t h e m i n d of t h e o t h e r before views are e x p r e s s e d
e l s e w h e r e b y either.
3. I n f u r t h e r a n c e of t h e above provisions, w i t h r e s p e c t t o e x c h a n g e of
views a n d information, t h e t w o G o v e r n m e n t s agreed t h a t t h e r e shall b e t h e
m a x i m u m degree of u n i t y in t h e p r e s e n t a t i o n e l s e w h e r e of t h e t h e views of
the two countries.
4 . T h e t w o G o v e r n m e n t s agree t o a d o p t a n e x p e d i t i o u s a n d c o n t i n u o u s
m e a n s of c o n s u l t a t i o n b y w h i c h each p a r t y will o b t a i n directly t h e opinions
of t h e o t h e r .
5. T h e t w o G o v e r n m e n t s agree t o a c t t o g e t h e r in m a t t e r s of c o m m o n
concern in t h e S o u t h - w e s t a n d S o u t h Pacific areas.
6. S o far as c o m p a t i b l e w i t h t h e e x i s t e n c e of s e p a r a t e m i l i t a r y ctim­
m a n d s t h e t w o G o v e r n m e n t s a g r e e to c o - o r d i n a t e t h e i r efforts for t h e p u r p o s e
of p r o s e c u t i n g t h e w a r t o a successful conclusion.
Armistice
and Subsequent
Arrangements.
' 7 . T h e t w o G o v e r n m e n t s declare t h a t t h e y h a v e v i t a l i n t e r e s t s i n all
p r e p a r a t i o n s for a n y a r m i s t i c e e n d i n g t h e p r e s e n t hostilities or a n y p a r t
thereof, a n d also in a r r a n g e m e n t s s u b s e q u e n t t o a n y s u c h a r m i s t i c e , a n d
agree t h a t t h e i r i n t e r e s t s s h o u l d b e p r o t e c t e d by r e p r e s e n t a t i o n a t t h e
h i g h e s t level on all a r m i s t i c e p l a n n i n g a n d e x e c u t i v e bodies.
T26807]
B 2
8. T h e two G o v e r n m e n t s are in a g r e e m e n t t h a t t h e final p e a c e s e t t l e ­
m e n t should be m a d e in r e s p e c t of all our e n e m i e s after hostilities w i t h all
of t h e m are concluded.
9. S u b j e c t to t h e last t w o preceding clauses t h e t w o G o v e r n m e n t s will
seek a g r e e m e n t w i t h each o t h e r on t h e t e r m s of a n y a r m i s t i c e t o be
concluded.
10. T h e two G o v e r n m e n t s declare t h a t t h e y should actively p a r t i c i p a t e
in a n y a r m i s t i c e c o m m i s s i o n to b e set u p .
11. H i s M a j e s t y ' s G o v e r n m e n t in t h e C o m m o n w e a l t h of A u s t r a l i a shall
set u p in Australia, and H i s M a j e s t y ' s G o v e r n m e n t in t h e D o m i n i o n of
N e w Z e a l a n d shall set u p in N e w Z e a l a n d , a r m i s t i c e a n d post-hostilities
p l a n n i n g c o m m i t t e e s and shall a r r a n g e for t h e work of t h e s e c o m m i t t e e s to
b e co-ordinated in order t o give effect t o the views of t h e r e s p e c t i v e
Governments.
12. T h e t w o G o v e r n m e n t s will collaborate generally w i t h r e g a r d to t h e
location of m a c h i n e r y set u p u n d e r i n t e r n a t i o n a l organisations, s u c h as t h e
U n i t e d N a t i o n s Eelief a n d R e h a b i l i t a t i o n A d m i n i s t r a t i o n , a n d in p a r t i c u l a r ,
w i t h r e g a r d t o t h e location of t h e P a r E a s t e r n C o m m i t t e e of t h a t
Administration.
Security
and
Defence.
13. T h e t w o G o v e r n m e n t s agree t h a t w i t h i n t h e f r a m e w o r k of a general
s y s t e m of world security a regional zone of defence c o m p r i s i n g t h e S o u t h ­
w e s t a n d S o u t h Pacific a r e a s shall b e established a n d t h a t this z o n e s h o u l d
b e b a s e d on A u s t r a l i a and N e w Z e a l a n d , s t r e t c h i n g t h r o u g h t h e a r c of islands
n o r t h a n d n o r t h - e a s t of A u s t r a l i a t o W e s t e r n S a m o a a n d t h e Cook I s l a n d s .
14. T h e t w o G o v e r n m e n t s r e g a r d it as a m a t t e r of c a r d i n a l i m p o r t a n c e
t h a t t h e y should b o t h be associated, not only in t h e m e m b e r s h i p b u t also
i n t h e p l a n n i n g and e s t a b l i s h m e n t of t h e general i n t e r n a t i o n a l organisation,
referred to in t h e M o s c o w D e c l a r a t i o n of O c t o b e r 1943, w h i c h o r g a n i s a t i o n
is b a s e d on t h e principle of t h e sovereign e q u a l i t y of all peace-loving S t a t e s
a n d o p e n to m e m b e r s h i p by all s u c h S t a t e s , large or s m a l l , for t h e m a i n t e n ­
ance of i n t e r n a t i o n a l peace a n d security.
15. P e n d i n g t h e r e - e s t a b l i s h m e n t of l a w and order a n d t h e i n a u g u r a t i o n
of a s y s t e m of g e n e r a l security, t h e two G o v e r n m e n t s h e r e b y declare t h e i r
v i t a l i n t e r e s t in the action on behalf of t h e c o m m u n i t y of n a t i o n s , c o n t e m ­
p l a t e d in Article V of t h e M o s c o w D e c l a r a t i o n of O c t o b e r 1943. F o r t h a t
p u r p o s e it is agreed t h a t it w o u l d be proper for A u s t r a l i a a n d N e w Z e a l a n d
t o a s s u m e full responsibility for policing or s h a r i n g in policing s u c h areas in
t h e S o u t h - w e s t a n d S o u t h Pacific as m a y from t i m e t o t i m e be a g r e e d u p o n .
16. T h e t w o G o v e r n m e n t s a c c e p t as a recognised principle of inter­
n a t i o n a l p r a c t i c e t h a t t h e c o n s t r u c t i o n and use in t i m e of w a r b y a n y P o w e r
of n a v a l , m i l i t a r y or air i n s t a l l a t i o n s in a n y territory u n d e r t h e sovereignty
or control of a n o t h e r Power, does n o t in itself afford any basis for territorial
c l a i m s or r i g h t s of s o v e r e i g n t y or control after the conclusion of hostilities.
Civil
Aviation.
17. T h e t w o G o v e r n m e n t s agree t h a t t h e r e g u l a t i o n of all air t r a n s p o r t
services s h o u l d b e s u b j e c t to t h e t e r m s of a c o n v e n t i o n w h i c h will s u p e r s e d e
t h e C o n v e n t i o n r e l a t i n g t o t h e R e g u l a t i o n of Aerial N a v i g a t i o n .
18. T h e t w o G o v e r n m e n t s declare t h a t t h e air services u s i n g t h e
i n t e r n a t i o n a l air t r u n k r o u t e s .hould b e o p e r a t e d b y a n i n t e r n a t i o n a l air
transport authority.
19.
T h e t w o G o v e r n m e n t s s u p p o r t t h e principles t h a t :
(a) full control of t h e i n t e r n a t i o n a l air t r u n k r o u t e s a n d t h e o w n e r s h i p
of all aircraft a n d ancillary e q u i p m e n t s h o u l d be v e s t e d in t h e
i n t e r n a t i o n a l air t r a n s p o r t a u t h o r i t y , a n d
(b) t h e i n t e r n a t i o n a l air t r u n k r o u t e s should t h e m s e l v e s be specified in
t h e i n t e r n a t i o n a l a g r e e m e n t referred t o in t h e n e x t s u c c e e d i n g
clause.
20. T h e t w o G o v e r n m e n t s agree t h a t t h e c r e a t i o n of t h e i n t e r n a t i o n a l
air t r a n s p o r t a u t h o r i t y s h o u l d b e effected b y an i n t e r n a t i o n a l a g r e e m e n t .
2 1 . W i t h i n t h e f r a m e w o r k of t h e s y s t e m set u p
i n t e r n a t i o n a l a g r e e m e n t t h e two G o v e r n m e n t s s u p p o r t :
under
any
such
(a) t h e r i g h t of e a c h c o u n t r y to c o n d u c t all air t r a n s p o r t services w i t h i n
its own n a t i o n a l jurisdiction, including i t s own c o n t i g u o u s
territories, s u b j e c t only to a g r e e d i n t e r n a t i o n a l r e q u i r e m e n t s
r e g a r d i n g safety facilities, l a n d i n g a n d t r a n s i t r i g h t s for i n t e r ­
n a t i o n a l services, a n d e x c h a n g e of m a i l s ,
(6) t h e r i g h t of A u s t r a l i a a n d N e w Z e a l a n d to utilise t o t h e fullest e x t e n t
t h e i r p r o d u c t i v e c a p a c i t y in r e s p e c t of aircraft a n d r a w m a t e r i a l s
for t h e p r o d u c t i o n of aircraft, a n d
(c) t h e right of A u s t r a l i a a n d N e w Z e a l a n d t o u s e a fair p r o p o r t i o n of
t h e i r own personnel, agencies a n d m a t e r i a l s in o p e r a t i n g a n d
m a i n t a i n i n g i n t e r n a t i o n a l air t r u n k r o u t e s .
22. I n t h e e v e n t of failure to obtain
m e n t to e s t a b l i s h a n d g o v e r n t h e u s e of
t w o G o v e r n m e n t s will s u p p o r t a s y s t e m
o p e r a t e d b y G o v e r n m e n t s of t h e B r i t i s h
Government ownership.
a s a t i s f a c t o r y i n t e r n a t i o n a l agree­
i n t e r n a t i o n a l air t r u n k r o u t e s , £lie
of air t r u n k r o u t e s controlled a n d
C o m m o n w e a l t h of N a t i o n s u n d e r
2 3 . T h e two G o v e r n m e n t s will act jointly in s u p p o r t of t h e a b o v e ­
m e n t i o n e d principles, w i t h r e s p e c t to civil aviation, a n d e a c h will inform
t h e o t h e r of its existing i n t e r e s t s a n d c o m m i t m e n t s as a basis of a d v a n c i n g
t h e policy herein agreed u p o n .
De-pendencies
and
Territories.
24. Following t h e p r o c e d u r e a d o p t e d a t t h e conference w h i c h h a s j u s t
concluded, t h e t w o G o v e r n m e n t s will r e g u l a r l y e x c h a n g e i n f o r m a t i o n a n d
views in r e g a r d t o all d e v e l o p m e n t s in, or affecting, t h e islands of t h e Pacific.
2 5 . . T h e two G o v e r n m e n t s t a k e n o t e of t h e i n t e n t i o n of t h e A u s t r a l i a n
G o v e r n m e n t t o r e s u m e a d m i n i s t r a t i o n a t t h e e a r l i e s t possible m o m e n t of
t h o s e p a r t s of its t e r r i t o r i e s w h i c h h a v e n o t y e t b e e n re-occupied.
26. T h e t w o G o v e r n m e n t s d e c l a r e t h a t t h e i n t e r i m a d m i n i s t r a t i o n a n d
u l t i m a t e disposal of e n e m y territories in t h e Pacific is of v i t a l i m p o r t a n c e
t o A u s t r a l i a a n d N e w Z e a l a n d and t h a t a n y s u c h disposal s h o u l d b e effected
only w i t h t h e i r a g r e e m e n t a n d as p a r t of a g e n e r a l Pacific s e t t l e m e n t .
27. T h e two G o v e r n m e n t s declare t h a t n o c h a n g e in t h e s o v e r e i g n t y or
s y s t e m of control of any of t h e islands of t h e Pacific s h o u l d be effected,
e x c e p t as a result of a n a g r e e m e n t to w h i c h t h e y are p a r t i e s or in t h e t e r m s
of w h i c h t h e y h a v e b o t h c o n c u r r e d .
Welfare
and Advancement
of Native
Peoples
of the
Pacific.
28. T h e two G o v e r n m e n t s declare t h a t , in a p p l y i n g t h e p r i n c i p l e s of t h e
A t l a n t i c C h a r t e r t o t h e Pacific, the doctrine of t r u s t e e s h i p , a l r e a d y a p p l i c a b l e
i n t h e case of t h e m a n d a t e d territories of w h i c h t h e t w o G o v e r n m e n t s are
m a n d a t o r y P o w e r s , is applicable i n broad principle to all colonial t e r r i t o r i e s
i n t h e Pacific a n d e l s e w h e r e , and t h a t t h e m a i n p u r p o s e of t h e t r u s t is t h e
welfare of t h e n a t i v e p e o p l e s , a n d t h e i r social, e c o n o m i c a n d political
development.
29. T h e t w o G o v e r n m e n t s agree t h a t t h e f u t u r e of t h e v a r i o u s t e r r i t o r i e s
of t h e Pacific and t h e welfare of t h e i r i n h a b i t a n t s c a n n o t b e successfully
p r o m o t e d w i t h o u t a g r e a t e r m e a s u r e of collaboration b e t w e e n t h e n u m e r o u s
a u t h o r i t i e s c o n c e r n e d in t h e i r control a n d t h a t s u c h collaboration is
p a r t i c u l a r l y desirable in r e g a r d t o h e a l t h services a n d c o m m u n i c a t i o n s ,
m a t t e r s of n a t i v e e d u c a t i o n , anthropological i n v e s t i g a t i o n , a s s i s t a n c e i n
n a t i v e production and material development generally.
30. T h e t w o G o v e r n m e n t s a g r e e t o p r o m o t e t h e e s t a b l i s h m e n t at t h e
e a r l i e s t possible d a t e of a regional o r g a n i s a t i o n w i t h advisory p o w e r s w h i c h
could be called t h e S o u t h S e a s B e g i o n a l C o m m i s s i o n a n d o n w h i c h , in
a d d i t i o n t o r e p r e s e n t a t i v e s of A u s t r a l i a a n d N e w Z e a l a n d , t h e r e m i g h t b e
a c c r e d i t e d r e p r e s e n t a t i v e s of t h e G o v e r n m e n t s of t h e U n i t e d K i n g d o m a n d
t h e U n i t e d S t a t e s of A m e r i c a a n d of t h e F r e n c h C o m m i t t e e of N a t i o n a l
Liberation.
31. T h e t w o G o v e r n m e n t s agree t h a t it shall b e t h e f u n c t i o n of s u c h
S o u t h Seas Begional Commission as m a y be established t o secure a c o m m o n
policy on social, e c o n o m i c a n d political d e v e l o p m e n t , d i r e c t e d t o w a r d s t h e
a d v a n c e m e n t a n d well-being of t h e n a t i v e p e o p l e s t h e m s e l v e s a n d t h a t in
particular the commission shall:
(a) r e c o m m e n d a r r a n g e m e n t s for t h e p a r t i c i p a t i o n of n a t i v e s
in
administration in increasing measure, with a view to promoting
t h e u l t i m a t e a t t a i n m e n t of s e l f - g o v e r n m e n t in t h e form m o s t s u i t e d
.to t h e c i r c u m s t a n c e s of t h e n a t i v e peoples c o n c e r n e d ,
(b) r e c o m m e n d a r r a n g e m e n t s
for m a t e r i a l d e v e l o p m e n t ,
including
production, finance, c o m m u n i c a t i o n s a n d m a r k e t i n g ,
(c) r e c o m m e n d a r r a n g e m e n t s for c o - o r d i n a t i o n of h e a l t h a n d m e d i c a l
services a n d e d u c a t i o n ,
(d) r e c o m m e n d a r r a n g e m e n t s for m a i n t e n a n c e a n d i m p r o v e d s t a n d a r d s
of n a t i v e welfare in r e g a r d to l a b o u r c o n d i t i o n s a n d p a r t i c i p a t i o n of
n a t i v e s in a d m i n i s t r a t i o n a n d social services,
(e) r e c o m m e n d a r r a n g e m e n t s for collaboration in economic, social,
medical and anthropological research, and
(/) m a k e a n d p u b l i s h periodical r e v i e w s of progress t o w a r d s t h e d e v e l o p ­
m e n t of self-governing i n s t i t u t i o n s in t h e islands of t h e Pacific a n d
i n t h e i m p r o v e m e n t of s t a n d a r d s of living, c o n d i t i o n s of work,
education, h e a l t h a n d general welfare.
[26807]
B 3
Migration!
32. I n t h e p e a c e s e t t l e m e n t or other n e g o t i a t i o n s , t h e two G o v e r n m e n t s
will accord one a n o t h e r full s u p p o r t in m a i n t a i n i n g t h e a c c e p t e d principle
t h a t every government- h a s t h e r i g h t ,to control i m m i g r a t i o n a n d e m i g r a t i o n
in r e g a r d to all territories w i t h i n its jurisdiction.
33. The. t w o G o v e r n m e n t s will collaborate, e x c h a n g e full information
a n d r e n d e r full a s s i s t a n c e t o one a n o t h e r in all m a t t e r s c o n c e r n i n g m i g r a t i o n
t o t h e i r respective territories.
International
Conference
Relating
to the South-ivest
and South
Pacific.
34. T h e t w o G o v e r n m e n t s a g r e e t h a t a s soon as practicable t h e r e s h o u l d
be a frank e x c h a n g e of views on t h e p r o b l e m s of security, post-war develop­
m e n t a n d n a t i v e welfare b e t w e e n properly accredited r e p r e s e n t a t i v e s of t h e
G o v e r n m e n t s w i t h existing territorial i n t e r e s t s in t h e S o u t h - w e s t Pacific
area or in t h e S o u t h Pacific area or in b o t h , n a m e l y , in addition to t h e two
G o v e r n m e n t s , H i s M a j e s t y ' s G o v e r n m e n t in t h e U n i t e d K i n g d o m , t h e
G o v e r n m e n t of t h e U n i t e d S t a t e s of A m e r i c a , t h e G o v e r n m e n t of t h e N e t h e r ­
l a n d s , t h e F r e n c h C o m m i t t e e of N a t i o n a l L i b e r a t i o n a n d t h e G o v e r n m e n t
of P o r t u g a l , a n d H i s M a j e s t y ' s G o v e r n m e n t in t h e C o m m o n w e a l t h of
A u s t r a l i a should t a k e t h e n e c e s s a r y s t e p s t o call a conference of t h e Govern­
m e n t s concerned.
Permanent
,
Machinery
for Collaboration
and Co-operation
Australia
and New Zealand.
between
.I
35. T h e t w o G o v e r n m e n t s agree t h a t :
(a) t h e i r co-operation for defence s h o u l d be d e v e l o p e d b y —
(i) c o n t i n u o u s c o n s u l t a t i o n in all defence m a t t e r s of m u t u a l
interest,
(ii) t h e organisation, e q u i p m e n t , t r a i n i n g a n d exercising of t h e
a r m e d forces u n d e r a c o m m o n doctrine,
(iii) joint p l a n n i n g ,
(iv) i n t e r c h a n g e of staff, and
(v) t h e co-ordination of policy for t h e p r o d u c t i o n of m u n i t i o n s ,
aircraft a n d s u p p l y i t e m s and for s h i p p i n g to e n s u r e t h e
g r e a t e s t possible degree of m u t u a l aid, c o n s i s t e n t w i t h t h e
m a i n t e n a n c e of t h e policy of self-sufficiency in local
production,
- (b) collaboration in e x t e r n a l policy on all m a t t e r s affecting t h e p e a c e ,
welfare a n d good g o v e r n m e n t of t h e Pacific should be s e c u r e d
t h r o u g h the e x c h a n g e of information a n d f r e q u e n t M i n i s t e r i a l
consultation,
(c) t h e d e v e l o p m e n t of c o m m e r c e b e t w e e n A u s t r a l i a a n d N e w Z e a l a n d
and
their
industrial
development
should
be p u r s u e d
by
c o n s u l t a t i o n a n d in agreed cases b v joint "olanninp,
(d) t h e r e should b e co-operation in achieving full e m p l o y m e n t in
A u s t r a l i a a n d N e w Z e a l a n d a n d the h i g h e s t s t a n d a r d s of social
security, b o t h w i t h i n t h e i r b o r d e r s a n d t h r o u g h o u t t h e i s l a n d s of
t h e Pacific a n d o t h e r t e r r i t o r i e s for w h i c h t h e y m a y jointly or
severally be wholly or p a r t l y responsible, a n d
(e) t h e r e s h o u l d be co-operation in e n c o u r a g i n g missionary w o r k a n d all
o t h e r activities d i r e c t e d t o w a r d s t h e i m p r o v e m e n t of t h e welfare of
t h e n a t i v e p e o p l e s in t h e islands and t e r r i t o r i e s of t h e Pacific.
36. T h e t w o G o v e r n m e n t s declare t h e i r desire to h a v e t h e a d h e r e n c e t o
t h e objectives set o u t in t h e last p r e c e d i n g clause of a n y other G o v e r n m e n t
h a v i n g or controlling t e r r i t o r i e s in t h e Pacific.
37. T h e t w o G o v e r n m e n t s a g r e e t h a t t h e m e t h o d s t o b e u s e d for c a r r y i n g
o u t t h e provisions of C l a u s e 35 of t h i s a g r e e m e n t , a n d of other provisions of
t h i s a g r e e m e n t , shall b e c o n s u l t a t i o n , e x c h a n g e of i n f o r m a t i o n and, w h e r e
applicable, joint p l a n n i n g . T h e y f u r t h e r agree t h a t s u c h m e t h o d s shall
include :
(a) conferences of M i n i s t e r s of S t a t e t o be h e l d a l t e r n a t e l y in C a n b e r r a
and W e l l i n g t o n , it being t h e a i m of t h e t w o G o v e r n m e n t s t h a t t h e s e
conferences b e h e l d a t l e a s t t w i c e a y e a r ,
(b) conferences of d e p a r t m e n t a l officers and t e c h n i c a l experts,
(c) m e e t i n g s of s t a n d i n g i n t e r - G o v e r n m e n t a l c o m m i t t e e s on s u c h s u b j e c t s
as are a g r e e d to b y t h e t w o G o v e r n m e n t s ,
(d) t h e fullest use of t h e s t a t u s a n d functions of t h e H i g h C o m m i s s i o n e r
of t h e C o m m o n w e a l t h of A u s t r a l i a in N e w Z e a l a n d a n d of t h e H i g h
C o m m i s s i o n e r of t h e D o m i n i o n of N e w Z e a l a n d in Australia,
(e) r e g u l a r e x c h a n g e of information, (/) e x c h a n g e of officers, a n d (g) t h e d e v e l o p m e n t of i n s t i t u t i o n s in either c o u n t r y serving t h e c o m m o n
p u r p o s e s of b o t h .
Permanent
Secretariat.
38. I n order to e n s u r e c o n t i n u o u s collaboration on t h e lines set o u t in
this a g r e e m e n t and to facilitate t h e c a r r y i n g out of t h e d u t i e s a n d functions
involved, t h e two G o v e r n m e n t s agree t h a t a p e r m a n e n t s e c r e t a r i a t shall
be e s t a b l i s h e d in A u s t r a l i a a n d in N e w Z e a l a n d .
39. T h e s e c r e t a r i a t shall b e k n o w n as t h e A u s t r a l i a n - N e w Z e a l a n d
Affairs S e c r e t a r i a t a n d shall consist of a s e c r e t a r i a t of t h e like n a m e to b e
set u p in A u s t r a l i a a n d a s e c r e t a r i a t of t h e like n a m e t o be set u p i n N e w
Zealand, e a c h u n d e r t h e control of t h e M i n i s t e r of E x t e r n a l Affairs i n t h e
c o u n t r y concerned.
40.
T h e functions of t h e S e c r e t a r i a t shall be :
(a) to t a k e t h e initiative in e n s u r i n g t h a t effect is given to t h e provisions
of this a g r e e m e n t ,
(b) to m a k e a r r a n g e m e n t s as t h e occasion arises for t h e holding of con­
ferences or m e e t i n g s ,
(c) t o c a r r y out t h e directions of t h o s e conferences in r e g a r d t o f u r t h e r
c o n s u l t a t i o n , e x c h a n g e of i n f o r m a t i o n or t h e e x a m i n a t i o n of
particular questions,
(d) to co-ordinate all f o r m s of collaboration b e t w e e n t h e t w o G o v e r n ­
men is,
(e) t o r a i s e for j o i n t discussion a n d action s u c h o t h e r m a t t e r s as m a y
s e e m from d a y t o d a y to r e q u i r e a t t e n t i o n b y t h e t w o G o v e r n m e n t s ,
and
(/) generally t o p r o v i d e for m o r e f r e q u e n t a n d r e g u l a r e x c h a n g e s of
information a n d views, t h e s e e x c h a n g e s b e t w e e n t h e t w o Govern­
m e n t s to t a k e p l a c e n o r m a l l y t h r o u g h t h e r e s p e c t i v e H i g h
Commissioners.
4 1 . H i s M a j e s t y ' s G o v e r n m e n t in t h e C o m m o n w e a l t h of A u s t r a l i a a n d
H i s M a j e s t y ' s G o v e r n m e n t in t h e D o m i n i o n of N e w Z e a l a n d e a c h shall
n o m i n a t e a n officer or officers from t h e staff of t h e i r r e s p e c t i v e H i g h
C o m m i s s i o n e r s to act in closest collaboration w i t h t h e S e c r e t a r i a t , in w h i c h
they shall b e accorded full access t o all r e l e v a n t sources of i n f o r m a t i o n .
42. I n e a c h c o u n t r y t h e M i n i s t e r of S t a t e for E x t e r n a l Affairs a n d t h e
resident H i g h C o m m i s s i o n e r shall h a v e joint responsibility for t h e effective
functioning of t h e S e c r e t a r i a t .
Ratification
and Title
of
Agreement.
4 3 . T h i s a g r e e m e n t is s u b j e c t to ratification by t h e r e s p e c t i v e Govern­
m e n t s a n d shall come into force as soon as b o t h G o v e r n m e n t s h a v e ratified
the a g r e e m e n t and h a v e notified e a c h other accordingly. I t is i n t e n d e d t h a t
such notification will t a k e p l a c e as soon as possible after t h e signing of t h i s
agreement.
44. T h i s a g r e e m e n t shall
A g r e e m e n t , 1944.
be k n o w n a s t h e A u s t r a l i a n - N e w
Zealand
D a t e d t h i s twenty-first d a y of J a n u a r y , O n e T h o u s a n d N i n e H u n d r e d a n d
Forty-fourSigned on behalf
New Zealand.
of H i s M a j e s t y ' s
G o v e r n m e n t i n t h e D o m i n i o n of
Signed o n behalf of H i s M a j e s t y V G o v e r n m e n t in t h e
of A u s t r a l i a .
Commonwealth
A N N E X 2. Telegram
No. 22 of 25th January, 1944, from the Australian Government
Secretary, of Slate for Dominion
Affairs.
to the
Repeated to New Zealand Government, No. 14.
Following is joint telegram to United Kingdom Government from Prime
Ministers of New Zealand and Australia. Repeated to New Zealand Government
for information : —
(Secret.) The Australian and New Zealand Governments desire to invite
the attention of United Kingdom Government to particular aspects of the
Australian-New Zealand Agreement signed at Canberra on 21st J a n u a r y , copies
of which were given to United Kingdom High Commissioner a t Canberra and
Australian accredited representative a t London for transmission to United
Kingdom Government. A t outset the two Governments wish to emphasise to
United Kingdom Government that the holding of this conference and the discus­
sions and decisions resulting therefrom w ere fully in accord with principles of
free consultation between individual members of the British Commonwealth of
Nations and that the strength and unity of the British Commonwealth is in the
forefront of the policy of both Australia and New Zealand.
r
1. We would invite particular attention to objectives of Australian-New
Zealand co-operation as defined in Clauses 1-6 of the Agreement.
2. Armistice and subsequent arrangements. The Australian and New
Zealand Governments greatly appreciate the detailed information which has been
supplied by United Kingdom Government with regard to armistice preparations
and subsequent arrangements in connection with the war in Europe.
W e are in agreement t h a t our interests should be protected by representation
a t highest level on all armistice planning and executive bodies and that we should
actively-participate in any armistice commission to be set up. So far as Europe
is concerned, and in explanation of the desire to be associated with armistice
arrangements in that theatre, both Governments base their a t t i t u d e on the fact
t h a t twice within our generation we have been involved in war as a result of
hostilities arising in Europe. While we look forward to exchanging w i t h United
Kingdom Government the fullest information as to armistice and subsequent
arrangements in connection w i t h the war in the Pacific, we feel t h a t no time should
be lost in undertaking detailed preparations in this sphere and that Australia
and New Zealand should be directly associated with this work at the earliest
possible date.
Meanwhile our two Governments have agreed t h a t post hostilities planning
committees (similar to those already established in United Kingdom and Canada)
should be set up in Australia and New Zealand, and will a r r a n g e for the work
of these committees to be co-ordinated.
Our two Governments are in agreement t h a t no final peace settlement should
be made in respect of any of our enemies until after hostilities with all of them
are concluded.
3. United Nations Relief Administration. Our two Governments have
agreed that it is most desirable that the F a r Eastern Committee of the United
Nations Relief and Rehabilitation Administration should be located in Australia.
4. Security and Defence. The two Governments are in agreement that
within the framework of a general system of world security a regional zone of
defence comprising the South-West and South Pacific areas should be established
and t h a t this should be based on A u s t r a l i a and New Zealand, stretching through
the arc of islands north a n d north-west of Australia to Western Samoa and the
Cook Islands.
W e feel that it would be a great mistake if it were now agreed to confine the
planning and establishment of the general international organisation referred to
in the Moscow Declaration of October 1943 to the four signatory Powers we
regard it as a matter of cardinal importance t h a t Australia a n d New Zealand
should both be associated in the initial stages with t h e elaboration of any general
international system.
Our two Governments have declared in the agreement that they have a vital
interest in the action on behalf of the community of nations contemplated in
Article V of the Moscow Declaration and are therefore ready to assume
responsibility for policing or sharing in policing such areas in the South- West
and South Pacific as may from time to time be agreed upon.
9
Our vital interest in this matter is obvious. The future security of both our
countries is dependent, subject to a general system of world security, on the
arrangements to be made for the control and "defence of the South-West and
South Pacific areas and these arrangements will inevitably be affected by the
interim arrangements immediately following the reconquest of the Netherlands
Indies and contiguous territories. Australia a n d New Zealand feel that they must
be closely associated with all decisions and measures taken in this important
formative stage and desire subject always to consultation and agreement with the
other Governments concerned : (a) t h a t Australia have full responsibility for the
policing of Portuguese Timor, Australian New Guinea and the Solomon Islands
Protectorate, and (b) that A u s t r a l i a have a share in the responsibility for the
policing of the Netherlands Indies particularly Java, Dutch New Guinea and
also the New Hebrides. A s regards Pacific Islands in general south of the
Equator we believe that responsibility for policing should primarily be with the
United Kingdom, Australia and New Zealand, though it is realised that regard
must be paid to the position of the United. States which already has a naval base
in Tutuila. We assume, however, t h a t the United States will wish to undertake
a substantial share of responsibility for policing the islands north of the Equator.
We regard it as essential that such arrangements should be made as p a r t of a
general scheme and not piecemeal. W e have closely examined the means of
providing a permanent instrument of security in the South-West and South
Pacific areas and believe that a zone of defence could be established by agreement
among the Governments concerned, i.e.. United Kingdom, Australia and New
Zealand, United States, Netherlands, France and Portugal (see Section I I below).
5. Disposal of war-time installations. I n regard to the post-war disposal
of installations the two Governments accept as a recognised principle of inter­
national practice t h a t the construction and use in time of war by any Power of
naval, military or air installations in any territory under the sovereignty or control
of another Power does not in itself afford any basis whatsoever for territorial
claims or rights of sovereignty or control after the conclusion of hostilities. The
two Governments were firmly of the opinion t h a t in view of subsequent difficulties
which may well arise on this question a declaration of principle a t an early stage
was necessary. Obvious illustrations of the international practice occur in the
cases of Iceland and the Azores.
6. Civil Aviation. As regards the clauses in the agreement on civil aviation
it will be noted t h a t in the event of failure to obtain a satisfactory international
agreement to establish and govern the use of international air trunk routes the
two Governments will support a system of air trunk routes controlled and operated
by Governments of the British Commonwealth of Nations under Government
ownership. W e would emphasise our firm adherence to principle of international
Government ownership control and specification of t r u n k routes to extent defined
in the agreement and our firm belief t h a t the alternative of British Commonwealth
trunk routes should be p u t forward only in case every effort to achieve inter­
nationalisation fails.
7. Dependencies. There was a comprehensive interchange of information
and views on war-time developments in the Pacific Islands particularly regarding
the following :—
(a) Development of bases, airfields, &c.;
(b) War-time administration;
(c) American activities;
(d) War-time collaboration between Australia, New Zealand, and other
Powers and the local administration.
(e) Effects of war on native labour, social life, standards of living, &c.
Under (b) was included the action taken by Australia in regard to pre­
parations for resumption of administration in Nauru, the war-time administra­
tion of New Guinea and P a p u a and the function of the Combined Civil Affairs
Committee. On the last matter the Australian Government informed the New
Zealand Government that inquiries had been made in London and t h a t the
status and functions of this Committee were being reconsidered. The two Govern­
ments agreed t h a t if the scope of the Civil Affairs Committee were extended
to the South and South-West Pacific area they would desire direct representation
upon it. They would also be glad to have any information as to arrangements
the United Kingdom Government contemplates for the interim administration
of its Pacific Island territories. The Australian Government is prepared to make
75
available for this purpose a number of (experienced officers and is prepared to
institute immediately an emergency course of training for suitable qualified men.
8. War-time administration and post-war disposal of enemy territories.
The administration and disposal of enemy territories, particularly the Japanese
Mandated Islands, are also of the greatest importance to Australia and New
Zealand. The two Governments have set out in the agreement that " the interim
administration and ultimate disposal of enemy territories in the Pacific are of
vital importance to Australia and New Zealand and that any such disposal should
be effected only with their agreement and as part of a general Pacific settle­
ment."
9. In regard to the possibility that changes of sovereignty might be
suggested in the South-West and South Pacific, the two Governments declared
" that no change in the sovereignty or system of control of any of the islands
of the Pacific should be effected except as a result of an agreement to which they
are parties or in the terms of which they have both concurred."
10. Welfare of native peoples. The agreement declared that in applying
the principle of the Atlantic Charter the doctrine of trusteeship is applicable in
broad principle to all Colonial territories in the Pacific and elsewhere, and t h a t
the main purpose of the trust is the welfare and advancement of the native
peoples.
We have agreed to .take the initiative in promoting the early establishment
of an Advisory Regional Organisation. This proposal is in accord with sugges­
tion made by the Secretary of State for Colonies in his statement in the House of
Commons on the 13th July, 1943, and the similar suggestion contemplated at
the time when Lord Halifax discussed with Mr. Cordell Hull the possibility of a
joint Anglo-American Declaration on post-war Colonial Policy. I t is suggested
t h a t this Advisory Body, which might be called the " South Seas Regional
Commission," should comprise, in addition to representatives of Australia and
New, Zealand, representatives of the Governments of the United Kingdom and
the United States, and of the French Committee of National Liberation.
Our view is t h a t it should be the function of such a South Seas Regional
Commission to secure a common policy on social economic and political develop­
ment directed towards the advancement and well-being of the native peoples
themselves. The establishment of the Commission along the lines set out in
Clause 31 of the agreement is receiving further consideration here, and we
look forward.to exchanging views in detail with the United Kingdom Govern ­
ment.
11. Conference relating to South-West and South Pacific.
The two Governments have agreed that as soon as practicable there should
be a frank exchange of views on the problems of security (see last p a r a g r a p h of
Section 4 above), post-war development and native welfare between properly
accredited representatives of the two Governments with existing territorial
interests in the South-West Pacific area or in the South Pacific area or in both,
namely, in addition to the two Governments, H i s Majesty's Government in the
United Kingdom, the Government of the United States, the Government of the
Netherlands, the French Committee of National Liberation and the Government
of Portugal and H i s Majesty's Government in the Commonwealth of Australia
should take the necessary steps to call a conference of the Governments
concerned.
I n this connection the Australian and New Zealand Governments are agreed
t h a t it will not be practicable to hold a conference of this kind until some time
after the forthcoming conference of British Commonwealth P r i m e Ministers in
London. I t is proposed to hold the conference at Canberra about the middle of
the year and invitations will be issued later.
12. Permanent machinery for collaboration and co-operation between
Australia and New Zealand. We invite particular attention to articles of our
agreement relating to machinery for co-operation in defence (Clause 35 (a)) and
Clause 36).
13. As an immediate step towards further action in implementing the
decisions of the conference both Governments would appreciate the views of the
United Kingdom Government on matters referred to in this telegram.