Conference Files: Lot 59 D 95: CF
20
Report of Subcommittee D to the Foreign
Ministers1
secret
London, May 9,
1950.
MIN/TRI/P/21
Item 7: The Colonial
Question
1. subjects discussed
- (a)
- Colonial questions in the United Nations
- (b)
- Africa
2. colonial questions in the united
nations
It was agreed that Ministers should be asked to take note that
further conversations on this important problem were considered
desirable and should be held as soon as possible.2 The main issues it
was desired to discuss were:
(A) Non-self-governing
Territories
- (1)
- International accountability to the United Nations in
respect of Colonial policies and activities:
- (a)
- The question of principle.
- (b)
- The attitude to be adopted towards the Special
Committee on information transmitted under Article
73 (e).
- (2)
- The submission of political information to the United
Nations.
- (3)
- Problems in connexion with the definition of the
conception of “non-self-governing territory.”
(B) Trust Territories
- (1)
- The relative functions of the United Nations and of the
administering authorities and the tendency of the United
Nations to concern itself with administration as well as
supervision of the Trust Territories.
- (2)
- The relationship between the Trusteeship Council and the
General Assembly and the question of whether the Trusteeship
Council
[Page 1094]
is
obliged to carry out any decision of the Assembly or has the
power to reach its own conclusions on the point at
issue.
(C) Any other questions concerning
the General Assembly’s Resolutions of December 1949 relating to
Chapters 11, 12, and 13 of the Charter
In considering the above it was agreed to take into account both the
present world situation and the implications of the emergence of
dependent peoples, and also political and administrative realities
in the Colonies. It was also agreed that the tactical and public
relations aspects of this question should be carefully studied.
3. africa
The French, American and British representatives each made a
statement on the approach of their respective Governments to African
problems. Their respective views are set out in the three Annexes to
this Paper.
The French representative explained, in regard to Africa south of the
Sahara, that it was important to prevent the progress of African
peoples being retarded or diverted by interference from
irresponsible and possibly malevolent critics in the United Nations
or elsewhere. It should be recognised that the future of Africa was
a matter of great importance to the democracies of Western Europe
and the Americas and it was thus essential that they should
co-operate in the development of Africa’s social and economic
standards by the provision of all appropriate assistance. These
views are set out in Annex I to this paper.
The American representative explained that his Government was
appreciative of the achievements of the Colonial Powers in Africa
and the object of the United States in interesting itself in Africa
was to co-operate with those Powers in developing the part Africa
could play in the world. He then outlined the recent thinking of the
State Department concerning United States policy towards Africa.
These views are set out in Annex II to this Paper,
The British representative was in general agreement with the views
expressed by his French and American colleagues. He emphasized that
continuing collaboration between the Colonial Powers on African
questions already existed, particularly between France and the
United Kingdom in West Africa, where very close Anglo-French
co-operation was especially important for the solution of the
pressing political, social and economic problems of that area. He
welcomed the intention of the United States Government to interest
itself in the future of Africa since he felt that co-operation and
assistance of the United States in international bodies and in other
ways would help greatly
[Page 1095]
to mitigate the effects of ignorant and irresponsible criticism on
the strength and stability of the Colonial Powers in Africa. These
views are set out in Annex III of this paper.
It was agreed
- (a)
- that the three countries are basically in agreement as to
the broad lines to be followed in the political development
of the peoples of Africa and to the achievement of improved
economic and social conditions; and to this end recognise
the importance of developing the existing co-operation among
France, the United Kingdom and the other African Powers, and
of establishing close co-operation between those countries
and the United States;
- (b)
- that the fact that such a large measure of agreement on
principles had been reached on this important matter should
be drawn to the attention of the Secretaries of
State.
4. recommendation
That the questions and policies raised in the annexed statements
should be considered in detail at a later date.
Annex I
Declaration by the French Delegation on
Item 7 of the Agenda (Colonial Question)
Introduction
In January 1950 the United States Government asked the French
Government to inform them in general terms of French policy in
the territories in black Africa administered by France and asked
that questions concerning the economic development and the
future of black Africa, as well as the resolution of certain
particular points which might be the subject of subsequent
conversations, should be included in the Agenda of the
tripartite London Conference.
The French Government, which understands the United States
Government’s interest in a continent whose geographical
situation and the social evolution of whose inhabitants are of
interest to all the countries of the Western community, has
accepted the principle of the conversations thus suggested.
The French Delegation is able to communicate the following to the
other Delegations:
- 1.
- The French Delegation considers together with the
United States Delegation that the various Governments
administering territories in Africa bear the heavy
responsibility of this administration.
- 2.
- The policy pursued too constantly by certain
delegations on the Trusteeship Council and at the United
Nations General Assembly
[Page 1096]
tends, from motives which appear
often to be of a political and even demagogic character,
to undermine the authority of the administering powers.
It is impossible to over-emphasise the
consequences of such action, the results of which
are to maintain or to provoke dissatisfaction
amongst the populations of African territories and
to provide a source of agitation which can only harm
the peaceful development of the education of these
peoples, to the advantage only of subversive
elements.
A favourable result has already been achieved since
the Governments concerned, and among them the United
States Government, have decided to examine in the
course of the above conversations all the colonial
problems included in the Agenda of the international
conferences at Lake Success in order to concert
their action so far as possible.
- 3.
- By the establishment of the institutions of the French
Union, the French Government have created conditions
which appear to it the most likely to assure the
progress and political development of the African
territories in the French Union. This progress can only
come about progressively and with the passage of time
and would be compromised by the development of
subversive movements which would place in jeopardy the
security of Africa itself, as also the security of the
countries of the Western
- 4.
- The political progress which the French Government is
thus pursuing can only be assured in harmony with the
social and economic development of the African peoples
and of the African territories.
- 5.
- Social development is one of the pre-requisites of
normal economic development. In order to secure it with
all the breadth of vision and the speed which are
necessary, the French Government, in agreement with the
other Governments interested in Africa, has undertaken a
work of inter-African collaboration in the technical
field. An organisation for the co-ordination of this
work, undertaken since 1945, has just been set up (the
Commission for Technical Cooperation in Africa).
- 6.
- Economic development will only show lasting results if
it is conceived henceforward in a new spirit. All action
tending to favour the installation of undertakings
intended only for drawing immediate profits from the
African territories and without interest for Africa
itself would risk impeding political progress whilst
maintaining the conception of exploitation of the
“colonialist” type, which the French Government for its
part have renounced.
- 7.
- But to create conditions suitable for the healthy
development of enterprises in Africa, the economy of the
territories must first receive basic equipment (power,
communications, etc.). The French Government considers
that this basic equipment should be concentrated in
certain zones where particularly favourable conditions
are to be found. An example of what might be a
comparable enterprise is the African zonal
industrialisation plan, the study of which has been
undertaken by M. E. Labonne, and the application of
which is to take place forthwith.
- 8.
- The importance of such plans is such that France must
be able to rely on foreign assistance. The political,
strategic and economic
[Page 1097]
consequences of their execution
are in addition so considerable that the other countries
of Western Europe and the United States would no doubt
wish to interest themselves with them.
For the
execution of these plans it will be necessary to
seek all the available resources of the countries of
Western Europe who see therein a means of
manifesting their solidarity, as well as the United
States who are interested, as is Europe, in African
development.
- 9.
- In particular France would hope to obtain certain
personnel requirements from certain of her European
neighbours.
Africa, for political, social and
climatic reasons, cannot be considered, despite her
low density of population, as suitable for the
unconditional immigration of surplus European
population.
On the other hand, and once the economic and social
development plans have been formulated, the
cooperation of other countries might be sought on
this point, either in regard to technical personnel
(doctors, engineers, etc.) or in regard to qualified
labour for certain works for the purpose of basic
economic equipment (public works) or finally in
regard to colonisation in the strict sense of the
word, which can be contemplated in certain definite
areas once the economic and industrialisation
development plans have been put under way.
- 10.
- This combination of endeavours should ensure suitable
conditions in the future for the liberation of the
populations concerned from the material servitudes which
still weigh upon them, and will also assure at the
present time the factors of stability and calm which the
French Government are anxious to maintain in this
continent.
Annex II
U.S. Statement on
Africa
secret
The United States aim is to get its views on and attitude to
African problems fitted into a cohesive long range policy. The
Lourenco Marques conference produced a series of tentative
conclusions upon which such an attitude might be built and these
conclusions may be summarized as follows:
It is the common interest of the western powers to have in Africa
conditions of political, economic, and social stability
sufficient to resist domination by unfriendly movements or
powers either through aggression or subversion. Long-range as
well as short-range stability should be the object.
The advancement of the social, political, economic and
educational condition of the African people and of harmonious
relations between the Africans themselves and between the
Africans and the governments with which they are associated is
to be desired.
The U.S. believes in the advancement of the economic, and, where
suitable, the strategic advantages to France and the United
Kingdom of their colonies and trust territories. The U.S.
strongly desires that
[Page 1098]
equal economic treatment be given to American capital and
American nationals who engage in trade in the African colonial
areas.
The U.S. favors the progressive development of all dependent
peoples towards the goal of self government and the development
of dependent territories, where conditions are suitable, towards
independence. The U.S. is sympathetic to the efforts which the
French and British Governments have taken towards the
development of such conditions.
The U.S. appreciates the fact that the peoples in so-called
“Black Africa” have not yet achieved a full knowledge and
understanding of modern political, economic and social
institutions; but that there must be an orderly guided
development of these peoples towards political maturity which
only time and patience can provide.
The U.S. favors the strengthening of the relationship between the
metropolitan powers and the colonial territories so long as the
people within the territories desire such development.
The U.S. believes that an increase in total African production
and trade and greater participation of Africa in world trade
will be beneficial not only to Europe and the U.S. but to the
African peoples. In so far as possible the U.S. is prepared to
assist the United Kingdom and France in their efforts towards
this goal.
The U.S. wishes to develop its trade, transportation and
investment interest in Africa whenever and wherever possible and
practicable. The U.S. desires to have access to raw materials,
air and sea facilities, air routes and communications points and
to have guaranteed rights of equal economic treatment in the
African territories.
The U.S. believes that the possibilities of European immigration
to Africa should be carefully studied with due regard to the
serious social, economic and political problems which such
immigration may create.
With regard to the United Nations activities affecting Africa,
the United States will give careful consideration to the views
of the metropolitan powers in determining the position which the
U.S. may adopt on specific issues. At present this matter is
being carefully studied.
The United States desires the fullest possible mutual
co-operation and understanding with the United Kingdom and
France on African matters and their understanding of the U.S.
The U.S. assures France and the United Kingdom that whatever may
be U.S. interests with regard to Africa, it is the U.S. desire
that they be co-ordinated with France and the U.K.
[Page 1099]
Annex III
Future of Africa: Statement of British Views
The statements of the French and United States representatives
(Annexes I and II), which seem themselves to indicate a
substantial measure of agreement between the two countries on
the lines of policy to be adopted in Africa, are in their
general objectives in accord with the British conception of
future policy in Africa. British policy in Africa is very
briefly summarised in the succeeding paragraphs.
1. political development
The main aim of British policy is to build up the dependent
territories in West, East and Central Africa into strong and
stable self-governing states within the British Commonwealth of
nations. For this purpose political institutions have for many
years operated in the territories and are in process of being
developed into Legislatures fully representative of all the
peoples of the territories, the rural people as well as those in
the towns in West Africa and the immigrant as well as the
African communities in East and Central Africa. This policy is
at the present time being carried into effect in the following
ways:—
- (a)
- In West Africa new constitutions are in process of
being brought into force under which representatives of
the people will play a full part, with their official
colleagues and under the leadership of the Governors, in
the formation of policy and the direction of executive
action. New legislatures will be established consisting
very largely of popularly elected representatives of the
people.
- (b)
- In East and Central Africa the immigrant communities
have long played their part in the legislatures of the
territories. More recently African members have been
included in the legislatures in increasing numbers;
their political education is proceeding in this and
other ways so as to enable them to play a full part in
the future, side by side with representatives of the
immigrant communities, in the political and
administrative life of these territories.
- (c)
- Increasing numbers of local people are being appointed
to higher administrative and technical posts in the
Government service of the territories.
- (d)
- Great emphasis is laid in all the territories on the
development of modern, efficient and representative
local government systems, since the sound and orderly
political development of the territories and the growth
of economic and social services is believed to depend to
a very large extent on the existence of an effective
system of local government.
The harmonious development of the African territories towards the
objective of responsible government within the British
Common-wealth
[Page 1100]
will
depend on the wisdom and skill with which relations are
conducted between the Governments and the people of the
territories and between different sections of the people
themselves. In this process Governments and people must give
every encouragement to the forces of moderation, stability and
goodwill and must resist the unreasonable demands of extremists.
World opinion can exercise a great influence on the African
territories and, if British policy is accepted as being sound
and progressive, we believe that we are entitled to ask for the
support of world opinion in discouraging extremist pressures and
encouraging all those elements in the territories which are
making for smooth and harmonious progress.
2. economic development
Self-governing political institutions must be based on soundly
developed economic resources, which will sustain the services
needed by a modern community. The requirement in the dependent
territories in Africa is to develop the basic
utilities—transport, water and energy. Special efforts must be
made by Governments to this end. All territories have important
schemes for the extension of highways and systems of feeder
roads; ports and inland waterways are being improved; railway
networks are being strengthened and re-equipped and careful
plans are being made for new railways, some of regional
significance, such as the proposed link between the Central and
East African systems. The improvement of rural and urban water
supplies is of the first importance for agriculture and
industry. One aspect of water control is the development of
hydro-electric power; the great power station at Jinja in Uganda
is now in course of construction and the potentialities of the
Volta River in the Gold Coast and the Zambesi and Shire Rivers
in Central Africa are being actively studied.
The productive resources of Africa are primarily agricultural.
Here the accent is on greater productivity by improving plant
strains, better control of disease, more modern methods of
cultivation, and more systems of agricultural organisation. The
great problem is to increase output and at the same time to
conserve and in some cases restore the fertility of the soil.
The first task of agriculture in Africa must be to feed the
growing population; the second to supply tropical commodities
which enter into world trade. Marketing methods have been
devised for many of the main crops designed to guarantee a fair
return to the producer and protect him from fluctuations in
world prices. Systems of inspection and grading have been
introduced in association with marketing schemes to raise the
quality of the product and establish its reputation on world
markets. Where experiments
[Page 1101]
in new crops and new methods are
required, pilot schemes are set up by Government which, if
successful, will be extended on a cooperative basis.
Vigorous efforts are being made to develop the mineral resources
of the territories. Basic geological surveys are being
undertaken to establish the potentialities and to stimulate
prospecting for fresh development.
External investment, British and foreign, is encouraged in the
African territories on equal terms, subject only to safeguards
designed to protect the legitimate interests of the local
inhabitants and the balance of payments position of the sterling
area, in accordance with the provisions of the Havana Charter
and the General Agreement on Tariffs and Trade.
Economic policy in the African territories is thus calculated to
promote the fullest possible use of their natural resources for
the benefit of the inhabitants and the growth of world trade.
African Governments accept responsibility for developing the
basic services necessary to provide the framework for expanded
private investment. Finance for development comes in part from
grants under the Colonial Development and Welfare Act; in part
from loans raised by Colonial Governments on the London market;
and in part from the surplus revenue balances of Colonial
administrations.
Development must not only increase the capital equipment of the
territories, but also stimulate remunerative activities which
will enable the territory to bear the recurrent charges of
social services and afford a sound basis for progressive and
self-reliant progress towards self-government.
3. social development
Territories which are progressing towards self-government need
not only the development of their economic resources, but the
men and women to operate political and economic institutions. To
produce these men and women modern educational systems are being
built up. Three University Colleges have been established and
are being developed at Ibadan in Nigeria, near Accra in the Gold
Coast and at Makerere in Uganda for the East African
territories. Higher Colleges of Arts, Science and Technology are
to be established in Nigeria, the Gold Coast and Sierra Leone.
Technical education facilities are being extended in all the
African territories and large expansions are also taking place
in normal secondary and primary education, with particular
emphasis on teacher training. Large numbers of men and women are
coming to this country and to the United States for further
education to fit them for higher posts in the Government, for
professional work and for posts in industry and commerce.
[Page 1102]
Throughout the African territories the policy of mass education
or community development is being actively applied. Mass
education has been defined as a movement designed to promote
better living for the whole community with the active
participation and, if possible, on the initiative of the
community. It is being pursued both in the urban and rural areas
and embraces all forms of betterment; not only education and the
spread of literacy; but agriculture and soil conservation;
health and hygiene; town and village improvement; and the
encouragement of co-operation. At the same time all the African
territories are developing and improving their preventive and
curative medical services.
4. co-operation with other african
countries
Most of the main problems of Africa, particularly in the
technical and economic fields, are problems which cannot be
solved by individual territories in isolation, but demand common
action over wide regions of the Continent. This principle has
long been recognised by British policy and close co-operation
between the British territories in the three regions of Tropical
Africa has been secured through the East Africa High Commission
and Legislative Assembly and through consultative bodies in West
and Central Africa.
But co-operation between the British territories alone is
insufficient; the main problems of Africa are not confined by
international frontiers. Since the war an active programme of
common international action has been pursued between the
Governments with responsibilities in Africa south of the Sahara,
namely France, Belgium, the United Kingdom, Portugal, Southern
Rhodesia and the Union of South Africa. A series of
international conferences has been held in Africa and Europe
covering all the more important technical and economic fields,
in particular transport, scientific research, measures against
locusts, the tsetse fly and rinderpest, fisheries, nutrition,
the problems of labour, soil conservation, and rural economy
generally. This programme will be continued under the aegis of
the Commission for Technical Co-operation in Africa south of the
Sahara set up in January, 1950.
Co-operation in the economic field between the European countries
with responsibilities in Africa is secured through the Overseas
Territories Committee of the Organisation for European Economic
Cooperation. In the political and administrative fields it has
been recognised that closer contacts between the African
territories and a closer understanding of each others’ problems
are necessary, and the Governments of these territories are now
pursuing these contacts, as a regular part of their work, at all
levels of the Government machine from Governors-General and
Governors down to administrative
[Page 1103]
and technical officers in the field.
Representatives of the peoples of the territories are at the
same time being associated with the progress of international
co-operation in Africa.
It is recognised that, although the United States Government has
no direct responsibilities in Africa, there are many advantages
to be gained from the closest contact and understanding with the
United States Government as part of the policy of international
co-operation in Africa; United States representatives are
regularly invited to attend the technical conferences referred
to above. The closest contact is also maintained with the
Economic Co-operation Administration with a view to making the
greatest possible use of the resources at their disposal for the
economic development of Africa.
