Foreign Relations of the United States, 1961–1963, Volume XXI, Africa

338. Paper Prepared in the Department of State⁰

Washington, April 6, 1963.

SUBJECT

• Situation Report on Southern Rhodesia

Demise of the Federation

To meet the demands of Messrs. Kenneth Kaunda and Harry Nkumbula, who control the Northern Rhodesian coalition government, Mr. R. A. Butler, as Minister for Central African Affairs, announced in London on March 29 that any member of the Federation of Rhodesia and Nyasaland had the right to secede from the Federation. As all three territorial governments are now in the hands of parties opposed to the continuance of the Federation and as Nyasaland’s right to secede had been conceded in December, this was the actual death knell of the Federation. The British hoped by this decision to clear the atmosphere for talks in June aimed at finding some alternative form of association acceptable to all three territories.

Independence for Southern Rhodesia

This development was followed on April 1 by a demand from the Prime Minister of Southern Rhodesia, Mr. Winston J. Field, that HMG now state in principle that Southern Rhodesia has the right to achieve independence at a date no later than the secession of either of the other two territories from the Federation or the granting of independence to the other two territories. He set HMG’s agreement to this proposition as a pre-condition for Southern Rhodesia’s participation in any talks regarding the future of the Central African territories. The British cabinet held an emergency meeting on April 1 and had subsequent discussions on this problem. To date, however, it has not made known its decision.

Mr. Iain MacLeod told Governor Stevenson in London this week that he did not think HMG would agree to Southern Rhodesian independence at this time. If independence is not granted, however, there is a possibility that the Southern Rhodesian Government may decide to declare independence unilaterally. Sir Roger Stevens has told officers of our Embassy in London that a unilateral declaration of independence by Southern Rhodesia could be prevented only by force and that HMG would find it impossible to use force.

UN Aspects

The Southern Rhodesian question has also been under debate in the Committee of 24 at the UN. The British have agreed to receive a sub-committee of the Committee of 24 in London in about a fortnight, but it is unlikely that they will be able to reassure the sub-committee fully regarding the ability of the UK Government to control the course of developments in Southern Rhodesia. The British have informed us that, subject to appropriate timing and to the still withheld consent of Prime Minister Field, they would agree to a visit to London and Salisbury by U Thant later in the year pursuant to a General Assembly resolution empowering the Secretary General to use his good offices in the Southern Rhodesian issue.

The Indian Delegation at New York has informed us of a commitment by the UN Afro-Asian group to Mr. Joshua Nkomo, leader of the nationalist movement in Southern Rhodesia, to place the Southern Rhodesian question on the agenda of the Special Session of the General Assembly in May if Mr. Nkomo were arrested on his return to Southern Rhodesia. On April 1 Mr. Nkomo was sentenced to six months at hard labor with three months of the sentence suspended on condition that he not be found guilty of further offenses against the stringent security legislation of the Colony for three years. Mr. Nkomo’s appeal seems unlikely to be successful and it is now virtually certain that the Southern Rhodesian question will come before the General Assembly next month.

British Attitude

The British share essentially the same objectives as the United States in Southern Rhodesia. From a narrow national interest point of view they would probably prefer to get out as quickly as possible. However, as in the case of other dependent territories, they are showing a marked sense of responsibility and making persistent endeavors to work out pragmatically arrangements acceptable to the various elements concerned. Mr. Harold Wilson, Leader of the Labour Party, paid high tribute to Mr. Butler’s handling of this difficult situation in a conversation with a Department officer during his recent visit to Washington. HMG is fully aware of the explosiveness and the intricacies of the Rhodesian situation. It is aware also, through representations made at all levels, of US nervousness over the problem and of our views as to how it should be handled. We have recognized that this is essentially a British problem and sought to extend what assistance we could in the UN. Loss of British control of the situation could, of course, entail wide repercussions on our policy objectives in Africa as a whole.

Implications

If the British succeed in the short term in deflecting the Southern Rhodesian Government from its demand for the right to independence at an early date it is possible that:

1. The Southern Rhodesian question may be inscribed on the agenda of the special UNGA session in May.

2. There would be a continually heightened interest by the Afro-Asian Bloc in expediting a settlement of the problem.

3. There would be a gradual increase of nationalist agitation within the Colony accompanied by a resort to arson, sabotage and the use of explosives.

If the British concede Mr. Field’s present demand or if Southern Rhodesia declares its independence unilaterally it is possible that:

1. There would be a move by the Afro-Asian Bloc to refer the question to the Security Council.

2. The African nationalists would form a government-in-exile in Tanganyika.

3. The US and UK would face difficult decisions regarding their positions on the question at the UN.

4. The likelihood would increase of the formation of a white-controlled bloc of states in Southern Africa.

5. The US would be obliged to reassess its small-scale AID program as well as its communications requirements and intelligence operations in Southern Rhodesia.

6. There would be a sharp increase in nationalist agitation.

0. Source: Kennedy Library, National Security Files, Countries Series, Rhodesia. Confidential. No drafting information appears on the source text. Attached to a memorandum from Brubeck to McGeorge Bundy that reads: “There is attached a situation report regarding developments in Southern Rhodesia. It is suggested that you may wish to bring the report to the attention of the President.”