328. Memorandum From the Department of State Executive Secretary (Battle) to the President’s Special Assistant for National Security Affairs (Bundy)0
SUBJECT
- Federation of Rhodesia and Nyasaland
The complex racial-political situation in the Federation of Rhodesia and Nyasaland is producing strains which could lead to violence and bloodshed if not promptly remedied. The objective of the British Government, which still has ultimate responsibility for the three territories of the Federation, is to bring about rapidly the advancement of the African population and their full political participation in government. The British have declared that there is no future for the Federation if it cannot secure the support of the African majority. The United States supports British objectives while encouraging greater speed in transferring responsibility to the Africans. In Nyasaland the Africans in the Legislative Council already have a majority and, under the leadership of Dr. Hastings Banda, have achieved a wide measure of self-government. Dr. Banda is determined to take Nyasaland out of the Federation though he may be able to continue some economic association.
In the protectorate of Northern Rhodesia the British Government has been under extreme pressure from African Nationalists on one side [Page 517] and the white settlers on the other over the preparation of a new constitution. After a year and a half of controversy both sides have reluctantly agreed to a constitution which calls for elections in October that may result in a slim African majority. Kenneth Kaunda, leader of the United Independence Party (UNIP), does not consider the new constitution workable but his party will fully contest the election, nevertheless. Sir Roy Welensky, Federation Prime Minister, has denounced the constitution which he sees as a threat to Federation.
Kaunda has recently told us that his real fear is that Welensky will use force or other unconstitutional methods to prevent the Northern Rhodesian elections and that the UK will not come to the defense of the protectorate. We are confident, however, that the British will make every effort short of the use of troops, in their power to prevent any such rash act by Welensky.
In Southern Rhodesia, which has by far the largest number of white settlers and which has been virtually self-governing since 1923, the Africans have never been allowed to participate in the government. However, the new constitution worked out in London calls for elections this Fall in which Africans may fill 15 seats of a total of 65 in the Southern Rhodesian legislature. The largest African national party, Zimbabwe African Peoples Union (ZAPU), under the leadership of Mr. Joshua Nkomo has recently appealed to the United Nations Special Committee of Seventeen for help in securing democratic rights for Southern Rhodesia. The fear of the Africans is that further political evolution in Southern Rhodesia will be frozen once the new constitution goes into effect, unless the UK retains and exercises control over the political destiny of the colony. While the British dispute this, we are inclined to agree with the Africans that the possibility is real. The United States therefore hopes that the UK will continue to exercise its influence in Southern Rhodesia, aimed at increasing African participation in government. It appears to us that the potential for real trouble is greater in Southern Rhodesia than in any other part of the Federation. Prime Minister Whitehead has pressed actively and successfully for removal of racial discrimination and for educational and political advancement at all levels in Southern Rhodesia. In doing so, he may have pushed the white settler electorate about as fast and as far as is politically possible. There is a real danger that if Whitehead takes a too-liberal line, he may be overthrown and a reactionary white group could come to power which could lead to an Algerian type racial stand-off or conflict.
The United States recognizes and supports the efforts of the British Government to resolve the complex problems of the Federation by maintaining the present direction and the trend of African advancement in the territories of the Federation, recognizing the difficulties, the hazards, and the injustices which will occur along the way. We also maintain and [Page 518] develop close and friendly contact with the African leadership that will head the Central African states of tomorrow. The attention which the UN Committee of Seventeen is now focusing on this area could, we hope, have a helpful effect, both in convincing the UK and Federation authorities that it’s later than they think, and in allaying the fears of Africans that their plight is forgotten.
At the same time current consideration in the UN Committee could have a damaging effect. A number of its members including the USSR are pushing for the adoption of resolutions which would call on the UK to abrogate the 1961 constitution for Southern Rhodesia and recommend early independence for both Rhodesias. The United States Delegation is opposing the adoption of any resolution. We fear in particular that passage of an immoderate text would make the UK task of conciliation more difficult, might make Welensky even more extreme, and might reduce the willingness of the UK to cooperate with the UN.
- Source: Kennedy Library, National Security Files, Countries Series, Rhodesia. No classification marking. Attached to the source text is a transmittal note from Battle to Bundy that reads: “Prior to Governor Williams’ departure for Africa, the President asked him to prepare a paper on the Rhodesias. The completed paper is attached.”↩
- Collopy signed for Battle above Battle’s typed signature.↩