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IS DOCUMENT IS THE PROPERTY OF HIS BRITANNIC MAJESTVS GOVERNMENT.
Printed for the Cabinet. April 1931.
SECRET.
Copy N o .
5
C P . 84 (31).
CABINET.
FUTURE
JOINT
OE
MEMORANDUM
THE
SOUTHERN
AND
NORTHERN
RHODESIA.
B Y T H E SECRETARY OE S T A T E FOR D O M I N I O N
SECRETARY OF STATE FOR T H E COLONIES.
AFFAIRS
AND
I N our M e m o r a n d u m C P . 409 (30) o f the 5th December w e called the
attention of the Cabinet to the fact that i m p o r t a n t questions w e r e l i k e l y to arise
in the near future affecting Southern and N o r t h e r n Rhodesia, and intimated that,
w e proposed to b r i n g before them the facts and the relevant considerations as
soon as w e w e r e in a position to do so. W e have now examined the question i n
detail and submit it f o r the Cabinet's consideration.
W e think i t w e l l to p r e f a c e the statement o f the question w h i c h the Cabinet
is asked to decide by b r i e f introductory statements r e g a r d i n g the t w o territories
concerned.
A sketch map is appended.
I . — ( a ) Introductory Statement as to Southern Rhodesia.
T h e Colony of Southern Rhodesia is a h i g h - l y i n g country o f 150,000 square
miles i n area, e x t e n d i n g f r o m the Zambesi in the north to the L i m p o p o i n the
south, and bounded on the west by the Bechuanaland P r o t e c t o r a t e and on the
east by Portuguese E a s t A f r i c a .
I t is inhabited by a European population o f
45,000 and a n a t i v e p o p u l a t i o n o f 1,000,000. M i n e r a l rights are owned by the
B r i t i s h South A f r i c a Company, w h o also control the r a i l w a y system w h i c h
provides through communication w i t h C a p e t o w n , B e i r a i n M o z a m b i q u e , and,
through N o r t h e r n R h o d e s i a , w i t h the B e l g i a n Congo and (shortly) w i t h L o b i t o
Bay in A n g o l a .
T i l l 1923 the administration of the country w a s in the hands
of the B r i t i s h South A f r i c a Company, but in that year responsible government
was g r a n t e d , subject to certain reservations, of which the most important relates
to n a t i v e affairs.
T h e chief industries o f the Colony a r e agriculture and mining, which account
in equal proportions f o r practically the whole of the exports.
Primarily,,
however, the European inhabitants of Southern Rhodesia are a community of
" f a r m e r s , " and the Southern Rhodesia Government may be described as a
" f a r m e r s ' " Government.
T h e p r i n c i p a l e x p o r t crop is tobacco, w h i c h has made
r a p i d progress of recent y e a r s under the stimulus o f I m p e r i a l preference, but the
prospects o f cotton are also considered t o be g o o d . Since the commencement o f
m i n i n g g o l d has been responsible f o r over three-quarters of the mineral output
of the Colony, and i t is s t i l l by f a r the most i m p o r t a n t export.
T h e chief other
minerals produced a r e asbestos, chrome and coal.
W h e n responsible government w a s g r a n t e d to Southern Rhodesia, i t w a s
p r o v i d e d that H i s M a j e s t y ' s Government i n the U n i t e d K i n g d o m should retain
the control over n a t i v e administration w h i c h they had exercised in the days of
the B r i t i s h South A f r i c a Company.
T h a t control has always been exercised
through the H i g h Commissioner for South A f r i c a , who, i n addition to his other
functions as " G o v e r n o r " of Basutoland, the Bechuanaland Protectorate and
S w a z i l a n d , is the A g e n t i n Southern R h o d e s i a of H i s M a j e s t y ' s Government in
[5291]
B
the U n i t e d K i n g d o m in r e g a r d to n a t i v e affairs and is invested by the constitution
of Southern Rhodesia, as embodied in the L e t t e r s P a t e n t of 1923, w i t h general
supervisory p o w e r s over n a t i v e questions in the Colony.
A p p o i n t m e n t s in the
Southern R h o d e s i a N a t i v e D e p a r t m e n t r e q u i r e his a p p r o v a l . T h e native reserves
are vested in h i m .
N o restrictions on natives (except as to arms and liquor)
w h i c h do not apply equally to Europeans, may be imposed w i t h o u t his consent.
H e has the r i g h t to call for i n f o r m a t i o n or i n v e s t i g a t i o n in regard to native
affairs when he thinks fit.
G e n e r a l l y , he is responsible to H i s M a j e s t y ' s Govern­
ment in the U n i t e d K i n g d o m f o r s a f e g u a r d i n g n a t i v e r i g h t s in the Colony.
I t may be mentioned here that the Southern R h o d e s i a Government have
recently taken occasion o f the separation of the posts of Governor-General of the
U n i o n of South A f r i c a and of H i g h Commissioner for South A f r i c a to propose
that the functions o f the H i g h Commissioner f o r South A f r i c a in relation to
Southern R h o d e s i a should be t r a n s f e r r e d to the Governor o f Southern Rhodesia,
and that they have been i n f o r m e d t h a t H i s M a j e s t y ' s G o v e r n m e n t in the United
K i n g d o m w e r e unable to agree to the adoption o f such an arrangement.
T h e question of the assignment between Europeans and natives of lands in
Southern Rhodesia has recently been settled by the Southern Rhodesia Land
A p p o r t i o n m e n t A c t , 1930, which f o l l o w s the lines recommended by a Commission
set up to investigate and report upon the question. T h e substance of the settle­
ment is that, out of the total area o f the Colony, 48,600,000 acres are reserved
f o r Europeans, 29,000,000 acres ( i n c l u d i n g both native reserves and native areas,
i.e., areas i n which only a native m a y hold or occupy l a n d ) are reserved for
natives, and the balance of 17,800,000 acres has been unassigned and reserved
f o r f u t u r e consideration for the purpose of adjusting any miscalculation which
time m a y show to have been m a d e i n the present a p p o r t i o n m e n t of land between
the t w o races. I n order to s a f e g u a r d native rights in the unassigned area,
p r o v i s i o n has been made that w i t h i n this area no land can be definitely assigned
w i t h o u t the p r i o r a p p r o v a l of the H i g h Commissioner, w h o is also entitled to
call f o r the a p p o i n t m e n t of a fresh Commission o f E n q u i r y i n t o the whole question
o f the unassigned area at any time t h a t he thinks fit.
I . — ( b ) Introductory Statement as to Northern Rhodesia.
T h e P r o t e c t o r a t e o f N o r t h e r n R h o d e s i a consists of a collection of territories
h a v i n g l i t t l e g e o g r a p h i c a l or e t h n o g r a p h i c a l connection, w i t h a total area of
n e a r l y 290,000 square miles, and a native population of over 1,300,000.
The
E u r o p e a n p o p u l a t i o n in 1928 w a s about 7,000, but has since increased to 11,000
o w i n g to m i n i n g development.
A central r a i l w a y line, 506 miles long (the
continuation of the central line passing through Southern R h o d e s i a ) , runs across
the P r o t e c t o r a t e f r o m the Southern R h o d e s i a border to the B e l g i a n Congo on the
north. T h e m i n i n g r i g h t s , as i n Southern Rhodesia, are owned by the British
South A f r i c a Company, which has leased the m i n i n g areas to various Companies,
in w h i c h A m e r i c a n c a p i t a l is prominent.
L i k e Southern Rhodesia, N o r t h e r n R h o d e s i a w a s administered by the
B r i t i s h South A f r i c a C o m p a n y t i l l 1924, when
i t came under the direct
a d m i n i s t r a t i o n o f H i s M a j e s t y ' s G o v e r n m e n t in the U n i t e d K i n g d o m , w h o have
retained complete control, though a n elected m i n o r i t y has been admitted t o the
L e g i s l a t i v e Council.
O n t a k i n g over, it was found t h a t h a r d l y a n y t h i n g h a d been done f o r the
n a t i v e p o p u l a t i o n except to t a x i t ; and the t e r r i t o r y still remains f a r behind
any other p a r t o f East or Central A f r i c a in matters r e l a t i n g to native welfare.
N a t i v e r i g h t s in l a n d had, however, been p a r t l y protected and the t r i b a l reserves
w h i c h have now been set aside i n c e r t a i n districts a p p e a r t o be adequate. There
are n o restrictions on n a t i v e l a n d - h o l d i n g i n unreserved a r e a s ; and there is no
l e g a l colour-bar, though, in practice, a bar exists in the neighbourhood o f the
r a i l w a y and is enforced in some trades by the Europeans. T h e Government and
the M i n i n g authorities are b e g i n n i n g to t r a i n natives t o m o r e skilled w o r k and,
i f this continues, conditions as r e g a r d s labour may be expected to a p p r o x i m a t e
in time to those i n E a s t A f r i c a .
Outside Barotseland, the n a t i v e organisations h a d been l a r g e l y discredited
and broken down. A b e g i n n i n g is being made w i t h resuscitating them.
A p a r t f r o m the difference in p o l i t i c a l structure, the most notable differences
between Southern and N o r t h e r n R h o d e s i a a r e that the l a t t e r is certainly f o r the
most part, and possibly nearly all, unsuited f o r permanent European settlement;,
and tnat the native population was never conquered, but has f r o m the first been
bound to the Crown by treaties on which, though often ignored where native
interests are concerned, a l l European titles rest.
T h e territory may be d i v i d e d into the f o l l o w i n g areas numbered : (1), (2),
(3), (4) and (5) respectively.
(1) Barotseland.—A n a t i v e State in treaty relations w i t h H i s Majesty's
Government, largely self-governing, w i t h an area of about 60,000 square m i l e s
and a population of 316,000.
There are no settlers among the E u r o p e a n
population o f 150. T h e P a r a m o u n t Chief of the Barotse and his Council signed
an agreement in 1900 to be " considered in the l i g h t of a treaty o r alliance made
between my Barotse nation and the Government of H e r B r i t a n n i c M a j e s t y Queen
Victoria, but nothing w r i t t e n in this agreement shall otherwise affect m y
constitutional power or a u t h o r i t y as Chief o f the said n a t i o n . " T h e agreement
also left a l l legal cases between natives to the P a r a m o u n t Chief (or " K i n g , " as
he was described in the agreement itself).
(2) North-Eastem Rhodesia.—An area of 105,000 square miles, connected
by a n a r r o w " bottle-neck" w i t h the rest of the P r o t e c t o r a t e , f r o m w h i c h i t was
administered separately till 1911. T h e natives number about 600,000 and the
whites between 700 a n d 800. M o s t of N o r t h - E a s t e r n Rhodesia is thoroughly
tropical, and the trade and communications are, and may be expected to continue
to be, chiefly through N y a s a l a n d or Tanganyika. T e r r i t o r y . M a n y o f the natives
seek employment in the K a t a n g a or Southern Rhodesia, and this area is a t present
the most important r e c r u i t i n g ground f o r the n e w mines in N o r t h e r n Rhodesia
itself.
(3) T h e M i n i n g A r e a , a t h w a r t the northern end o f the r a i l w a y , separated
by a purely conventional line f r o m the m i n i n g area of the B e l g i a n Congo. T h i s
is undergoing intensive development and is expected to be producing 200,000 tons
of copper a year in another four years, and twice as much four years later, at a
cost of production below that o f any other p a r t of the world. T h e local n a t i v e
population is sparse, less than a f a m i l y to the square mile and the mines a r e
at present favouring a policy of introducing and settling native f a m i l i e s , and
of t r a i n i n g natives to skilled work. Over 25,000 a r e already employed. I f this
policy, as w e hope, continues i t is possible that i n ten or fifteen years something
like 400,000 natives m a y settle round the mines, coming l a r g e l y f r o m N o r t h Eastern Rhodesia, N y a s a l a n d and Southern T a n g a n y i k a . T h e capital f o r these
mines is d r a w n about equally from B r i t a i n and the U n i t e d States of A m e r i c a .
T h e w h i t e population i s already over 6,000, and m a y possibly treble in four o r
five years. I t is of a different character f r o m that o f the rest o f the P r o t e c t o r a t e ,
being composed l a r g e l y of persons w h o have no intention o f r e m a i n i n g
permanently, o w i n g to climatic conditions, w h i c h i n the m i n i n g d i s t r i c t a p p e a r
to be unsuited to a settled European population.
(4) A n a g r i c u l t u r a l area south of the m i n i n g district, but north of the K a f u e
R i v e r , w i t h a h i g h - l y i n g comparatively healthy patch on the r a i l w a y line, on
which a n e w capital is being established. Communications to areas ( 1 ) , ( 2 ) and
(3) r a d i a t e f r o m this neighbourhood.
(5) A n area of about 30,000 square miles between the K a f u e R i v e r and the
Zambesi. T h i s marches w i t h Southern Rhodesia f o r 300 miles and is in the
same l a t i t u d e as the N o r t h e r n p a r t o f the Colony.
I t contains the present
capital, L i v i n g s t o n e , and a considerable p r o p o r t i o n of the w h i l e settlers. T h e
natives a r e estimated a t 150,000 and the Europeans at 2,400.
II.—Statement of the Question requiring Decision.
A t the end of September 1930 some of the Elected Members of the L e g i s l a t i v e
Council o f Northern R h o d e s i a , w h o objected to the recent W h i t e P a p e r on N a t i v e
P o l i c y i n East A f r i c a , telegraphed d i r e c t to the Secretary of State f o r the
Colonies enquiring whether H i s M a j e s t y ' s Government in t h e U n i t e d K i n g d o m
would be prepared to receive representations w i t h a v i e w to the amalgamation
of that T e r r i t o r y w i t h Southern Rhodesia under a constitution similar to that
enjoyed by the latter. T h i s w a s followed a f e w days later b y a telegram from
the Government of Southern Rhodesia to the Secretary of State f o r Dominion
A f f a i r s r e f e r r i n g to the representations made by the N o r t h e r n Rhodesia Elected
[5291]
B 2
M e m b e r s to the Colonial Office. T h e Southern R h o d e s i a Government stated that
" not only would they welcome the i n i t i a t i o n of discussions on the subject, but
f a i l u r e to take a d v a n t a g e of the o p p o r t u n i t y now presented f o r considering the
proposals f o r the a m a l g a m a t i o n w o u l d cause profound disappointment to them
and to the g r e a t m a j o r i t y o f the people o f Southern R h o d e s i a . " T h e y suggested,
therefore, " that a conference be a r r a n g e d . . . . f o r the purpose of discussing the
i m p o r t a n t questions i n v o l v e d . "
I t is this proposal by the Southern R h o d e s i a Government, i.e., that a
conference should be held to discuss the possibility of the amalgamation of the
whole of N o r t h e r n R h o d e s i a w i t h Southern R h o d e s i a under a constitution similar
to that enjoyed by the latter, to w h i c h a definite r e p l y is n o w r e q u i r e d .
Since it
w o u l d be nugatory for H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m to
agree to call a conference unless they w e r e in sympathy w i t h its objects, the
question f o r the C a b i n e f s decision is, in effect, whether the Government should or
should not contemplate the a m a l g a m a t i o n of N o r t h e r n w i t h Southern Rhodesia
in the near future, and i f not, whether there is any alternative to a mere
rejection of the Southern Rhodesia G o v e r n m e n t s proposal.
I I I . — ( a ) Considerations bearing on the Question from the Point of View of His
Majesty's Government in the United Kingdom
in Relation to
(a) Southern Rhodesia and (b) the Union of South Africa.
(a) I t is o f i m p o r t a n c e to bear i n mind, in connection w i t h the request made
by the Government o f Southern Rhodesia, t h a t the trend of public o p i n i o n i n the
C o l o n ) ' d u r i n g the last f e w years has set strongly away f r o m amalgamation with
the U n i o n , at one time r e g a r d e d as the inevitable destiny of the Colony, and
t o w a r d s the ideal o f a separate B r i t i s h p o l i t i c a l unit in the N o r t h , l a r g e enough
t o counter-balance the U n i o n of South A f r i c a w i t h its strong Dutch interests.
I t is symptomatic o f this tendency, which has been accentuated by the recent
direction o f U n i o n domestic p o l i t i c s , that f o r some years Southern Rhodesia
M i n i s t e r s have lost no o p p o r t u n i t y o f c a l l i n g attention to Southern Rhodesia's
hopes to the " reversion ' ' o f N o r t h e r n Rhodesia. M r . A m e r y , when approached as
Secretary o f State on this p o i n t by the late S i r Charles Coghlan,. then P r e m i e r of
Southern Rhodesia, and other Southern R h o d e s i a M i n i s t e r s , both i n E n g l a n d in
1926 and in Southern R h o d e s i a on his w o r l d tour in 1927, was careful to e x p l a i n
that he could not commit H i s M a j e s t y ' s Government in t h e U n i t e d K i n g d o m to a
statement o f future policy, -but w e n t so f a r as to express the o p i n i o n that there
w o u l d be much to be said f o r an u l t i m a t e p a r t i t i o n of N o r t h e r n Rhodesia, N o r t h E a s t e r n Rhodesia (area N o . ( 2 ) ) g o i n g w i t h N y a s a l a n d and the E a s t A f r i c a n
Dependencies, and the western p a r t o f the P r o t e c t o r a t e w i t h Southern Rhodesia.
I t is probable, therefore, that a r e p l y to the present request o f the Southern
R h o d e s i a Government, which f e l l short o f the possibility r e f e r r e d to M r . A m e r y
(i.e., as offering an accession of t e r r i t o r y substantially less than that h i n t e d at
by h i m ) , would be a disappointment t o the Government of Southern Rhodesia, and
that i t m i g h t be r e g a r d e d as setting a bar on w h a t has begun t o be r e g a r d e d as a
l e g i t i m a t e aspiration.
R e f e r e n c e m a y also be m a d e i n this connection to the
H i l t o n Y o u n g C o m m i s s i o n ^ R e p o r t o f 1929, w h i c h dealt to some extent w i t h
this matter. W h i l e the m a j o r i t y of the Commission expressed the v i e w that the
independent status o f N o r t h e r n R h o d e s i a (and N y a s a l a n d ) should be maintained
p e n d i n g development and mineral e x p l o i t a t i o n , the C h a i r m a n , on the contrary,
recommended that the G o v e r n o r of Southern R h o d e s i a should be appointed H i g h
Commissioner f o r N o r t h e r n R h o d e s i a and N y a s a l a n d and contemplated the
u l t i m a t e a m a l g a m a t i o n o f the " s e t t l e d a r e a " (presumably areas Nos. ( 3 ) , (4)
and ( 5 ) ) of N o r t h e r n R h o d e s i a w i t h Southern Rhodesia, the u l t i m a t e constitution
o f Barotseland (area N o . ( 1 ) ) as a n a t i v e reserve under Southern Rhodesia, and
the u l t i m a t e union of N o r t h - E a s t e r n R h o d e s i a (area N o . ( 2 ) ) w i t h Nyasaland.
N o pronouncement upon these recommendations has ever been made by H i s
M a j e s t y ' s Government in the U n i t e d K i n g d o m , but, upon their publication, the
Government of Southern R h o d e s i a at once m a d e representations to the effect that
they disagreed w i t h the v i e w o f the m a j o r i t y and u r g e d that no action m i g h t be
taken p r e j u d i c i a l to future closer union between Southern and N o r t h e r n
Rhodesia.
A p a r t from the aspirations o f the Southern R h o d e s i a Government in
r e g a r d to N o r t h e r n R h o d e s i a and the representations m a d e by them in recent
years, which must be reckoned as a factor o f i m p o r t a n c e in this connection, there
appears, on the merits, no reason affecting Southern R h o d e s i a w h y a change
should be made a t the present t i m e i n the arrangements f o r the f u t u r e
administration of Southern and N o r t h e r n R h o d e s i a respectively, which w e r e
concluded only seven years ago, when the t w o Rhodesias passed f r o m t h e
administration of the B r i t i s h South A f r i c a Company.
(6) F o r reasons which w i l l be a p p a r e n t f r o m the preceding p a r a g r a p h , the
aoo-randisement o f Southern R h o d e s i a at the expense of N o r t h e r n Rhodesia
would be likely to arouse l i v e l y interest in the U n i o n . T h e U n i o n have, of course,
no claim to any p a r t of N o r t h e r n Rhodesia, nor w o u l d they be entitled to object
to the incorporation of any p a r t of it i n Southern Rhodesia, but the eventuality
might provoke a request by the U n i o n Government, in its turn, f o r the transfer
to the U n i o n o f some or all of the H i g h Commission T e r r i t o r i e s (Basutoland, the
Bechuanaland P r o t e c t o r a t e and S w a z i l a n d ) whose ultimate incorporation i n the
Union is contemplated in the South A f r i c a A c t . I f such a request were made
by the U n i o n Government in this connection, it is likely that i t would relate
particularly to the Bechuanaland P r o t e c t o r a t e , whose f r o n t i e r , unlike those o f
the other t w o territories, marches w i t h t h a t of Southern R h o d e s i a and a t one
point touches N o r t h e r n Rhodesia.
T h e U n i o n G o v e r n m e n t m i g h t consequently
think i t well to take special steps to s a f e g u a r d the " r e v e r s i o n " o f the
Bechuanaland P r o t e c t o r a t e to the U n i o n . A request f o r the incorporation o f a n y
of the T e r r i t o r i e s i n the U n i o n w o u l d be embarrassing, as i t has for some time,
for reasons connected w i t h n a t i v e a d m i n i s t r a t i o n and f o r other reasons, been the
policy o f H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m to avoid such
incorporation, at any r a t e f o r the present; i t is, moreover, h i g h l y improbable
that P a r l i a m e n t , under e x i s t i n g conditions, w o u l d be w i l l i n g to approve such
incorporation in v i e w o f the f a c t that the n a t i v e inhabitants of the territories
would be strongly opposed to it. I n the p a r t i c u l a r case of the Bechuanaland
Protectorate, a p r e d o m i n a n t l y n a t i v e area, analogous to Barotseland, the
question has o f recent y e a r s come to be considered here whether i t m i g h t be better,
in spite of the South A f r i c a A c t , to aim at eventually associating the T e r r i t o r y ,
or at any rate the northern p a r t of i t , w i t h Southern R h o d e s i a or w i t h N o r t h e r n
Rhodesia, rather t h f n w i t h the U n i o n .
A special p o i n t i n this connection is that Southern R h o d e s i a has for some
time advanced a c l a i m to the incorporation of the T a t i Reserve (part of the
Bechuanaland P r o t e c t o r a t e ) into Southern Rhodesia. T h i s incorporation is also
strongly desired by the settlers in the T a t i Reserve, and the U n i o n have
intimated that they w o u l d have no objection to the transfer.
T h e reason w h y
fiction has been d e f e r r e d is that it w a s thought that to proceed in this m a t t e r
would inevitably cause the question of the incorporation o f the rest of t h e
Protectorate into the U n i o n to be raised.
I t is, perhaps, hardly, necessary to discuss the future of the Bechuanaland
Protectorate in detail in this connection, but the possible repercussion on t h i s
matter of the i n c o r p o r a t i o n of any p a r t of N o r t h e r n R h o d e s i a in Southern
Rhodesia has to be borne in m i n d .
I I I . — ( b ) Considerations bearing on the question from the point of view of His
Majesty's Government in the United Kingdom in its relation to Northern
Rhodesia.
T h e f o l l o w i n g considerations are of special, importance : —
(a) Barotseland (area N o . ( 1 ) ) and N o r t h - E a s t e r n R h o d e s i a ( A r e a N o . ( 2 ) )
are almost purely n a t i v e areas and are akin to the native areas in tropical A f r i c a .
There are accordingly strong reasons w h y they should remain under the direct
control of H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m , l i k e the East a n d
Central A f r i c a n territories, and w h y their transfer to a self-governing w h i t e
community should not be envisaged, even i f such transfer w e r e m a d e subject t o
the safeguard that the supervisory functions which the H i g h Commissioner f o r
South A f r i c a exercises in r e g a r d to n a t i v e affairs i n Southern Rhodesia w o u l d
be e x t e n d e d to them. I t may be taken as certain that the natives themselves, in so
far as they are articulate, w o u l d be opposed to such a transfer. A further p o i n t
in this connection (though it relates to Southern Rhodesia rather than to N o r t h e r n
Rhodesia) is that though the exercise by H i s M a j e s t y ' s Government in the U n i t e d
[5291]
B 3
K i n g d o m through the H i g h Commission f o r South A f r i c a of supervisory powers
over native affairs in Southern R h o d e s i a has not hitherto led to friction between
them and the Southern Rhodesia Government, the possibility of future friction
cannot be i g n o r e d i f the proportion of natives to Europeans in an enlarged
Southern R h o d e s i a w e r e doubled.
(b) A s a matter o f E m p i r e policy, it appears desirable that the mining
area (area N o . (3) ) should remain under the control of H i s M a j e s t y ' s Government
in the U n i t e d K i n g d o m . These mines may before long* be the governing factor
in the copper markets of the w o r l d , and their output w i l l become essential to
national defence in the event o f w a r a n d of p r i m a r y importance to the Empire's
trade and manufacture in peace-time. These questions of policy w e r e recently
considered by a Cabinet Committee, a n d the B o a r d of T r a d e has at present in hand
negotiations to secure a p r o p o r t i o n o f refining in this country.
Delicate
d i p l o m a t i c questions have arisen w i t h the B e l g i a n C o n g o and w i l l , no doubt,
increasingly arise when the output o f minerals begins to travel over the Belgian
and Portuguese R a i l w a y s . T h e conduct of such negotiations would be made more
difficult i f the m i n i n g area w e r e no longer administered under the authority of
H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m . M o r e o v e r , the n a t i v e workers
at the mines w i l l be d r a w n chiefly f r o m Nyasalandi and the South-Western parts
of the T a n g a n y i k a T e r r i t o r y as w e l l as f r o m N o r t h - E a s t e r n Rhodesia, and the
protection of their interests by H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m
w i l l be f a c i l i t a t e d i f the m i n i n g area remains under the direct control of that
Government.
I t should be noted in this connection that the agricultural area
( A r e a N o . ( 4 ) ) south o f the m i n i n g area is closely connected -with the mining­
area f r o m the point of v i e w of communications and should remain associated with
the m i n i n g area in order to ensure convenient arrangements f o r the adiministra­
tion and supply o f the latter.
I t is also the area in w h i c h the new capital of
N o r t h e r n R h o d e s i a w i l l be located.
A p a r t f r o m these considerations, i t may well be doubted whether the Southern
R h o d e s i a Government, which, as stated above, is p r i m a r i l y a " farmers' "
Government, is r e a l l y qualified t o take over the a d m i n i s t r a t i o n o f so large and
important a m i n i n g area as this promises to become. I t is even possible that their
doing so m i g h t lead to f r i c t i o n and difficulty w i t h the m i n i n g interests, and the
circumstances e x i s t i n g at Johannesburg in the years preceding the Boer W a r ,
different as they w e r e in many respects, may be r e f e r r e d to as showing the
possibilities o f such a situation.
(c) T h e objections, set out i n the preceding t w o p a r a g r a p h s , w h i c h exist
as regards the possible transfer o f areas Nos. (1), (2), (3) and (4) t o Southern
Rhodesia, w o u l d not apply, at any r a t e to the same extent, to the transfer to
Southern R h o d e s i a of the L i v i n g s t o n e area (area N o . ( 5 ) ) . N o t only is this area
closely a l l i e d to Southern Rhodesia geographically, but i t is predominantly an
area in w h i c h there is a settlement by E u r o p e a n " f a r m e r s , " l i k e Southern
Rhodesia itself.
A p p r o x i m a t e l y one-fourth of the E u r o p e a n population of
N o r t h e r n R h o d e s i a is i n this area. T h e a d m i n i s t r a t i o n of the remainder of this
heterogeneous P r o t e c t o r a t e w o u l d undoubtedly be f a c i l i t a t e d by the transfer
of a considerable section of the settled w h i t e p o p u l a t i o n to a self-governingColony w i t h w h i c h they are economically, g e o g r a p h i c a l l y and, somewhat to the
G o v e r n m e n t s embarrassment, p o l i t i c a l l y allied. I n p a r t i c u l a r , the disappearance
of three out of the seven constituencies r e t u r n i n g members to the L e g i s l a t i v e
Council w o u l d afford an o p p o r t u n i t y f o r considering the readjustment of the
constitution of the P r o t e c t o r a t e , w h i c h is not w e l l suited to present conditions.
IV.—Brief Recapitulation of Preceding Section.
B e f o r e proceeding further, i t m a y be convenient to summarise in a f e w lines
the considerations r e f e r r e d to in the p r e c e d i n g section of this M e m o r a n d u m : —
( i ) I n r e l a t i o n to N o r t h e r n Rhodesia, there are i m p o r t a n t reasons of native
policy w h y the transfer to Southern R h o d e s i a o f areas (Nos. (1) and ( 2 ) ) of the
P r o t e c t o r a t e cannot be contemplated! a t the present time.
( i i ) I n relation to Southern Rhodesia, w h i l e there seems, on the merits, no
case at the present time for t r a n s f e r r i n g to Southern R h o d e s i a a p a r t o f N o r t h e r n
Rhodesia (still less the whole of N o r t h e r n R h o d e s i a ) , the attitude and aspirations
of the Southern R h o d e s i a Government, reflecting, as they do, the trend of thought
lof the European inhabitants of the Colony, are an i m p o r t a n t factor, and t o
disregard them m i g h t w e l l affect the relations between the Southern R h o d e s i a
Government and H i s M a j e s t y ' s Government i n the U n i t e d K i n g d o m , which a r e at
present satisfactory.
( i i i ) I n relation t o the U n i o n of South A f r i c a , the transfer to Southern
Rhodesia of any p a r t o f N o r t h e r n R h o d e s i a at the present t i m e m a y well raise
the question, w h i c h H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m w o u l d
gladly see postponed, o f the transfer to the U n i o n of the South A f r i c a H i g h
Commission T e r r i t o r i e s - p a r t i c u l a r l y , perhaps, the Bechuanaland P r o t e c t o r a t e
(IV) From the point of v i e w o f the E m p i r e as a whole, i t is desirable t o
maintain I m p e r i a l cpntrol of the m i n i n g area (3) and the adjacent area (4)
V.—Fundamental Issue Involved.
The considerations and facts r e f e r r e d to above relate p r i m a r i l y to the
present, and deal in the l i g h t of existing conditions w i t h the proposal m a d e b y
the Southern Rhodesia Government.
A c t u a l l y , however, w i d e r considerations
are involved in the proposal than such, as turn on the situation in this p a r t o f
A f r i c a as it is at the present t i m e .
T h e fundamental issue is where, i n the
future, the boundary is to lie between a Southern A f r i c a , w i t h one t y p e o f
civilisation, and a central, or central and eastern, A f r i c a , w i t h another t y p e o f
civilisation. I t is clear that a final answer to this question cannot be g i v e n for a
good many years to c o m e ; and that much w i l l depend on factors and develop­
ments which cannot as y e t be clearly foreseen. A l l that can be hoped for a t this
stage is to ensure as f a r as possible that the decision to be taken on the request
made by the Southern Rhodesia Government, and any consequential action, shall
be such as w i l l not p r e j u d i c e in a sense contrary to natural development w h a t e v e r
line of division may eventually p r o v e to be the most suitable.
VI.—Proposed Line of Action.
L o o k i n g at the matter f r o m this p o i n t of v i e w , w e have come to the conclusion
that, i f there is t o be any addition o f N o r t h e r n Rhodesia t e r r i t o r y to Southern
Rhodesia in the near future, the most that could be added w o u l d be the
Livingstone area ( A r e a N o . ( 5 ) ) , and that i f any Conference is held, i t should be
strictly limited to consideration of this issue. W e consider, however, in order
that there may be no misapprehension, t h a t H i s M a j e s t y ' s Government i n the
U n i t e d K i n g d o m ought to make i t plain, i n offering to p a r t i c i p a t e in a Conference
on this basis, (1) that, i n their v i e w , the t i m e has not yet come when i t is possible
to determine the future political orientation of that p a r t of A f r i c a which may be
generally described as l y i n g between the Zambesi and T a n g a n y i k a T e r r i t o r y , but
(2) that i t is clear to them that it is impossible to consider, i n present circum­
stances, any diminution of their direct responsibilities i n relation to the mining­
area of Northern Rhodesia.
B y the offer of a Conference, accompanied by an
intimation to this effect, H i s M a j e s t y ' s Government w o u l d have made i t clear
that they were not opposed to a readjustment of boundaries if there w e r e a
practical advantage i n this and a definite desire for i t . On the other hand, this
attitude would also serve as a p l a i n indication that the transfer o f the
L i v i n g s t o n e area to Southern Rhodesia w o u l d not take effect unless the Southern
Rhodesia Government w e r e really anxious to take over that area, and, moreover,
were w i l l i n g to do so as an a l t e r n a t i v e to the idea that they should take over the
whole of N o r t h e r n R h o d e s i a or of a l a r g e r p a r t of N o r t h e r n Rhodesia than
the L i v i n g s t o n e area.
T h e r e w o u l d thus be no question of a transfer of the
L i v i n g s t o n e area to Southern Rhodesia under conditions which would encourage
Southern Rhodesia to hope f o r early amalgamation w i t h N o r t h e r n Rhodesia, or,
indeed, for the a d d i t i o n of further parts of N o r t h e r n R h o d e s i a w i t h i n a p e r i o d
which can now be envisaged.
I t remains t o be seen whether the Southern Rhodesia Government would
r e g a r d i t as to their advantage to accept the a d d i t i o n of the L i v i n g s t o n e area
in such circumstances. I t may w e l l be that they would not. W e have not f a i l e d
to g i v e consideration t o this aspect of the matter, but, on a balance of advantages
and disadvantages, w e are satisfied that, of the t w o alternatives which alone w e
are able to contemplate at the moment, i.e., a definite refusal to consider the
amalgamation of any p a r t of N o r t h e r n R h o d e s i a w i t h Southern Rhodesia at the
p r e s e n t time, a n d an offer to Southern R h o d e s i a to discuss the amalgamation of
the L i v i n g s t o n e area only w i t h Southern R h o d e s i a under the conditions indicated
above, the latter course w o u l d be the better one to a d o p t .
I f this course should be approved, and the Southern Rhodesia Government
should accept a conference on this basis, a number of further questions of
importance w o u l d r e q u i r e consideration, such as those affecting native interests
i n the area to be transferred, the actual boundaries o f the area to be transferred
and the steps to be taken to obtain the v i e w s of the natives of that area. These
m i g h t f o r m the subject of n e g o t i a t i o n either at the Conference itself, or
a f t e r w a r d s , i f necessary.
VII.—Proposed Procedure.
I f the line of action recommended in the p r e c e d i n g section is accepted by the
Cabinet, the next step w i l l be to consult the L e a d e r s of the Conservative and
L i b e r a l P a r t i e s w i t h r e g a r d t o it. I t w i l l be remembered that this proposal was
m a d e in our M e m o r a n d u m C P . 409 (30) o f the 5th December, on the ground that
the issues are of such importance that any decision reached should have the
concurrence of the L e a d e r s of all P a r t i e s i n order that continuity of policy might
be assured, and that this v i e w w a s accepted by the Cabinet (Cabinet 72 (30),
Conclusion 7). A s desired by the Cabinet conclusion r e f e r r e d to, we would report
f u r t h e r t o the Cabinet on our negotiations w i t h the L e a d e r s of the Conservative
and L i b e r a l P a r t i e s , and i f w e should be able to obtain their general concurrence
i n the line of action proposed, we should be i n a position, when r e p o r t i n g to the
Cabinet, to submit also f o r a p p r o v a l the actual terms o f the communication which
the Secretary of State f o r D o m i n i o n A f f a i r s w o u l d propose to address to the
Government of Southern Rhodesia in the matter.
I t is very desirable that the decision of H i s M a j e s t y ' s Government in the
U n i t e d K i n g d o m in the matter should be notified to the Southern Rhodesia
Government w i t h the m i n i m u m of delay. T h e Southern Rhodesia Government^
request w a s made in a telegram dated the 2nd October.
Consideration of the
m a t t e r w a s necessarily d e f e r r e d at the t i m e in v i e w of our preoccupations over
the I m p e r i a l Conference. E x a m i n a t i o n of the question w h i c h followed served to
i n d i c a t e the c o m p l e x i t y of the issues involved. M o r e recently, semi-official com­
munications received f r o m the G o v e r n o r of Southern Rhodesia appeared to
i n d i c a t e that the P r e m i e r of Southern R h o d e s i a contemplated coming to England
e a r l y i n the summer and w o u l d p r e f e r t h a t a decision should be deferred until he
could discuss the m a t t e r on his arrival. M r . Moffat has, however, n o w intimated
t h a t he proposes t o a w a i t a decision upon the Southern Rhodesia Government's
request before d e c i d i n g whether to come to E n g l a n d , and this affords a further
reason w h y an early i n t i m a t i o n to the G o v e r n m e n t of Southern Rhodesia of the
decision of H i s M a j e s t y ' s Government in the U n i t e d K i n g d o m in the matter is
v e r y desirable.
I t is also of g r a v e importance that at least the m a i n lines of p o l i c y should
be known publicly in N o r t h e r n R h o d e s i a as soon as possible. T h e ostensible
g r o u n d upon w h i c h a m a l g a m a t i o n is requested by the Elected Members of
N o r t h e r n Rhodesia is a desire for reversal o f the n a t i v e policy there of H i s
M a j e s t y ' s Government. Such a change of p o l i c y must have a repercussion on
industry, and, in present circumstances, the uncertainty w h i c h exists is likely to
affect seriously the industrial and a g r i c u l t u r a l progress of the country. The
negotiations w h i c h are at present p r o c e e d i n g w i t h the M i n i n g authorities in
connection w i t h labour supply and l e g i s l a t i v e control a r e dependent on acceptance
of the principles of the W h i t e P a p e r .
J. H. T.
P.
April 1931.