V. Questions Concerning Non-Self-Governing Territories and ...cdn.un.org/unyearbook/yun/chapter_pdf/1951YUN/1951_P1_SEC5.pdf · Non-Self-Governing Territories and Trusteeship Questions605

V. Questions Concerning Non-Self-Governing Territoriesand the International Trusteeship System

A. INFORMATION ON NON-SELF-GOVERNING TERRITORIESTRANSMITTED UNDER ARTICLE 73e OF THE CHARTER

In accordance with General Assembly resolu-tion 218(III) of 3 November 1948, Membersresponsible for the administration of Non-Self-Governing Teritories transmitted during 1951 in-formation under Article 73e of the Charter1 withrespect to the following Non-Self-Governing Ter-ritories:

Australia:Papua

Belgium:Belgian Congo

Denmark:Greenland

France:Comoro ArchipelagoFrench SomalilandFrench Equatorial AfricaFrench West AfricaMadagascar

TunisiaMoroccoNew Hebrides

(under Anglo-FrenchCondominium)

Netherlands:Netherlands New Guinea

New Zealand:Cook IslandsNiue Island

United Kingdom:

Aden Colony andProtectorate

BahamasBarbadosBasutolandBechuanaland ProtectorateBermudaBritish GuianaBritish HondurasBritish Solomon Islands

ProtectorateBritish Somaliland

ProtectorateBruneiCyprusDominicaFalkland Islands and

DependenciesFijiGambiaGibraltar

Tokelau Islands

Gilbert and Ellice IslandsColony

Gold Coast Colony andProtectorate

GrenadaHong KongJamaicaKenya Colony and

ProtectorateLeeward Islands ColonyMalaya, Federation ofMauritiusNew Hebrides

(under Anglo-FrenchCondominium)

NigeriaNorth BorneoNorthern RhodesiaNyasaland ProtectorateSt. HelenaSt. Lucia

St. VincentSarawakSeychellesSierra Leone Colony

and Protectorate

United States:AlaskaAmerican SamoaGuam

SingaporeSwazilandTrinidad and TobagoUganda ProtectorateZanzibar Protectorate

HawaiiPuerto RicoVirgin Islands

The Secretary-General had been asked by theAssembly to prepare full summaries and analysesof the information transmitted during 1949 andthereafter at three-year intervals, and to prepareannual supplements in the intervening years. In1951, he accordingly prepared, on the basis ofthe information transmitted with respect to indi-vidual Territories, summaries2 showing suchchanges in statistics and such other appreciablechanges as had occurred in the year under review,together with the relevant statistics for previousyears.

These summaries submitted in 1951 were dis-cussed in the Special Committee on InformationTransmitted under Article 73e of the Charter,3

which met from 2-27 October 1951.In addition to the summaries of statistical in-

formation and other studies mentioned later theCommittee had before it a preliminary analysis ofjuvenile delinquency (A/AC.35/L.36), a sum-mary of vital statistics (A/AC.35/L.57), and anote on settlement policies prepared by the Sec-retary-General (A/AC.35/L.61).

The representative of Denmark stated that hisGovernment felt the lack of comparisons and as-

1 For Charter provisions, see pp. 80-81.2 United Nations, Non-Self-Governing Territories:

Summaries and Analyses of Information Transmitted tothe Secretary-General during 1951. (U.N.P., Sales No.:1952.VI.B.1).

3 The title of the Special Committee was changed atthe Assembly's sixth session into "Committee on Infor-mation from Non-Self-Governing Territories," see pp.81-82.

Non-Self-Governing Territories and Trusteeship Questions 605

sessments on the basis of comparable statisticalinformation, the use of which had been madeimpossible by General Assembly resolution 447(V).4 It was becoming increasingly necessary tobe able to assess conditions in Non-Self-Govern-ing Territories against a background of statisticalinformation on neighbouring territories, whethernon-self-governing or not, where the same basicconditions prevailed. He hoped that this needwould be realized and that a procedure would beadopted which would make such assessment pos-sible.

The representative of the Philippines, supportedby the representative of India, suggested that, ow-ing to the dual aspects of economic and socialconditions involved in the subject of land settle-ment policies, the note on settlement policies pre-pared by the Secretary-General (A/AC.35/L.61)should be submitted to the Committee in its 1952session. The Committee agreed to this suggestion.

The summaries and analyses were also discussedduring the general debate on Non-Self-GoverningTerritories at the 205th to 211th meetings of theAssembly's Fourth Committee, from 19-26 No-vember. A number of representatives, among themthose of Greece, Pakistan and India, congratulatedthe Administering Powers on the informationtransmitted. The representative of Iraq stated thatthe information was encouraging and showed thatprogress was being made. The representatives ofthe Byelorussian SSR, Poland, the Ukrainian SSRand the USSR, however, said that the informationwas scanty and was designed to conceal the ex-ploitation of the Territories.

1. Territories to which Chapter XIof the Charter Applies

a. FACTORS TO BE TAKEN INTO ACCOUNT INDECIDING IF A TERRITORY IS SELF-GOVERNING

In resolution 334 (IV), the General Assemblyhad invited any special committee which it mightappoint on information transmitted under Article73e of the Charter to examine the factors whichshould be taken into account in deciding whetherany territory is or is not a territory whose peoplehave not yet attained a full measure of self-gov-ernment. The Special Committee in 1950 hadagreed that this item should be put on the agendaof its next session.

Background data on the factors relating to theapplication of Chapter XI of the Charter (A/-AC.35/L.30 and Add.1) had been compiled by

the Secretariat to assist the Committee consideringthis question.

The Special Committee discussed the questionat its 44th and 47th meetings on 22 and 25 Oc-tober 1951. The majority agreed that it was notthe task of the Committee to determine whetherthe inhabitants of any Territory had arrived at afull measure of self-government or who had au-thority to make that decision. The Committeewas merely to give guidance on factors to betaken into acount in determining the status of aNon-Self-Governing Territory. The representa-tive of the Netherlands maintained that the Ad-ministering Power had the right to decide sucha question and opposed in principle the establish-ment of any criteria for determining if a terri-tory was self-governing, since, in his opinion, itwas impossible to give a satisfactory definition ofa self-governing or non-self-governing territory.The representatives of Belgium, France and theUnited States felt it important to establish somecriteria, but agreed that such criteria would besolely for the use of the Administering Powerswith which, they agreed, the decision rested. Therepresentatives of Brazil, Cuba and Egypt, how-ever, held that an agreement must be reached be-tween the Administering Power and the GeneralAssembly before any change could be made inthe list of Non-Self-Governing Territories onwhich information was transmitted.

At its 44th meeting the Committee establisheda sub-committee, composed of the representativesof Belgium, Cuba, Denmark, Egypt, the Philip-pines and the United Kingdom, to draft a list ofpossible factors to be considered in determiningwhether the inhabitants of a specific Territory hador had not yet attained a full measure of self-government.

The Special Committee had before it at its47th meeting the report of this Sub-Committee onFactors Indicative of Degree of Self-Government(A/AC.35/L.69/Add.3). In the discussion on thedetailed aspects of the draft report, various amend-ments were adopted, including an alternative textto Part VI of the report, proposed by the repre-sentatives of Belgium, Denmark and the UnitedKingdom. By a roll-call vote of 8 to 7, with 1abstention, the Special Committee adopted thefollowing text as Part VI.

4 By resolution 447(V), the General Assembly in-vited the Secretary-General, in making use of comparablestatistical information, to obtain the consent of theMember Government concerned and to take into accountall elements necessary for scientific and objective com-parison.

606 Yearbook of the United Nations

"The Special Committee is of the opinion that thereare numerous elements which should be taken intoconsideration in reaching a decision whether or not aparticular territory would come within the scope ofChapter XI of the Charter. It does not consider that anysingle factor or any particular combination of factors canbe regarded as predominant or decisive in every case,except that the will of the people of the Territory con-cerned, properly and freely expressed, would in all casesbe the paramount factor in deciding whether a relation-ship between the Administering Authority and a Non-Self-Governing Territory has evolved to a stage wherethat Territory could be said to have attained 'a fullmeasure of self-government'. The Committee wishes tostress its belief that such factors should be regarded asa guide to conclusions rather than determining suchconclusions. It does not believe it necessary to at-tempt to give a relative importance to any one ormore of the proposed factors, nor that a list drawn upat a given time can be regarded as embracing all thefactors which might subsequently be relevant. The pat-tern of relationship is changing rapidly, and progressmay be achieved in the direction of advance throughself-government either to independence or to full parti-cipation in government in assimilation with the formerAdministering Authority or some other State. Differentfactors will apply in considering the status of Territoriesadvancing along these different lines. Some of thesefactors exclude each other, the majority applying onlyin the case of self-government or independence, whileothers—such as the factors mentioned in section B2below—apply only in the case of association with orincorporation in the metropolitan country or anotherState. The Committee therefore holds that, if thesefactors are considered reasonable, their applicability andinterpretation will be governed by the good faith andconsidered judgement of those responsible for applyingthem."

The alternative text proposed by Cuba, Egypt,and the Philippines would have differed primarilyin that it would have eliminated that portion ofthe text stressing the Committee's belief that suchfactors should be regarded merely as a guide toconclusions rather than determining such conclu-sions, and indicating that, in view of the patternof changing relationships, progress might beachieved in the direction of advance through self-government to assimilation, as well as to inde-pendence.

The Committee listed under the followingheadings factors to be taken into account in de-termining whether a territory is or is not a terri-tory whose people have not yet attained a fullmeasure of self-government. It stressed, however,that the list could not be regarded as exhaustive.A. General

(1) Geographical considerations(2) Constitutional matters(3) Ethnic and cultural considerations(4) Opinion of the population

B. Status(1) Independence or eligibility for membership

of the United Nations(2) Association with the metropolitan country

C. Internal Self-Government(1) Territorial government(2) Suffrage(3) Territorial fiscal, budgetary and tariff con-

trol(4) Chief executive(5) Legislature(6) Judiciary(7) Military service(8) Principal officers

D. Other Internal Conditions(1) General development(2) Trade unions

E. International Co-operation(1) Participation in international relations(2) Membership of international organizations

The amended draft report was adopted as awhole by 10 votes to 1, with 5 abstentions. Thereport, as approved, was submitted to the Gen-eral Assembly as part of the Special Committee'sreport (A/1836).

The General Assembly considered the questionof the Territories to which Chapter XI of theCharter applies at the 205th to 211th, 215th to218th and 241st meetings of its Fourth Commit-tee on 19, 21-23, 26 and 29 November, 1 and 3December 1951 and 9 January 1952 and at its361st plenary meeting on 18 January 1952.

During the debate, a number of representatives,among them those of Cuba, Egypt, Greece, Guate-mala, Indonesia, Uruguay and Venezuela, stressedthat while the Special Committee had been cor-rect in not considering the question of compe-tence, there was little use in making a list of fac-tors if the question of competence were left un-resolved. They considered that the General As-sembly should not delay any longer in determin-ing who was to decide whether a territory was orwas not self-governing. Among others, the repre-sentatives of Brazil, Cuba, the Dominican Repub-lic, Egypt, Guatemala, Indonesia and Uruguaythought that competence rested with the UnitedNations. The representatives of Belgium, theUnited Kingdom and the United States, inter alia,held, on the other hand, that it was a constitu-tional question on which their Governmentscould not surrender sovereignty and the right ofdecision.

Concerning the list of factors drawn up by theSpecial Committee, it was generally agreed thatfurther study was needed, particularly from thelegal point of view. The representatives of thePhilippines and the United States felt that thecriteria should not be too strict.

The representative of Czechoslovakia held thatall that was required was for the Administering


Powers to act within the scope of Chapter XI ofthe Charter. A list of factors would, he consid-ered, only make it possible for the AdministeringPowers to delay indefinitely the granting of self-government or independence to the Non-Self-Governing Territories.

The representatives of Belgium, the DominicanRepublic and Greece, among others, thought thatit was necessary to define the term "self-govern-ment". A number of representatives stressed thatin the case of an independent territory it wascomparatively easy to assess whether it was self-governing, but in the case of a territory associatedwith a Metropolitan Power or another State itwas very difficult.

The representative of Pakistan stated that hisdelegation would regard as a full measure of self-government only complete freedom from anyform of domination. The representatives of Den-mark and the Philippines, however, consideredthat self-government could be obtained eitherthrough association or independence.

The representative of Egypt spoke in favour ofthe alternative text, of which he had been co-sponsor, for Part VI of the Special Committee'sreport (see above). That text, he stated, betteremphasized that the will of the people of theTerritory concerned, properly and freely expressed,should in all cases be the paramount factor indeciding whether a relationship between the Ad-ministering Power and the Non-Self-GoverningTerritory had evolved to a stage where that Ter-ritory could be said to have attained a full meas-ure of self-government. The Committee's text, onthe other hand, gave equal weight to the attain-ment of independence and to full participationin government in association with the formerAdministering Power or some other State. If therewas to be association or integration, plebiscites,he suggested, should be held to ensure that it wasin accordance with the freely expressed will ofthe people concerned.

The Committee had before it the followingdraft resolutions:

(a) A joint draft resolution by Denmark and Pakis-tan (A/C.4/L.151), the operative part of which pro-vided that the General Assembly would:

(1) decide to accept as an interim guide for alluseful purposes the report of the Special Committee;

(2 ) invite Members of the United Nations to trans-mit in writing to the Secretary-General, by 1 June 1952,a statement of the views of their Governments on thefactors which ought to be taken into account in decidingwhether a territory is or is not a territory whose peoplehave not yet attained a full measure of self-government;

(3) request the Secretary-General, to that end, totransmit a copy of the resolution, together with a copyof Part Four of the Report of the Special Committee5 toall Member States;

(4) invite the Special Committee on InformationTransmitted under Article 73e of the Charter, at its 1952session, to consider any statements transmitted in ac-cordance with the resolution and to review the listproduced by it in 1951 in the light of those statements;and

(5) invite the Special Committee, to this end, toappoint a sub-committee at the beginning of its 1952session to prepare a report of these matters for submis-sion to the Special Committee.

(b) A draft resolution by Guatemala (A/C.4/L.152),whereby the Fourth Committee would establish a sub-committee to:

(1) study, and define in a draft resolution, the basicand general factors to be taken into account in decidingwhether a territory is or is not a territory whose peoplehave not yet attained a full measure of self-government;

(2) consider the advisability of establishing a com-mittee to (a) study these factors in greater detail; (b)analyse the cases of territories which in the opinion ofcertain Administering Powers have attained a full meas-ure of self-government; and (c) recommend suitableresolutions to the General Assembly at its next session.

The representative of Guatemala subsequently revisedhis draft resolution by providing that the proposed sub-committee would study the problem in the light of theSpecial Committee's report and the Fourth Committee'sdiscussions, and would submit its report to the FourthCommittee at the current session (A/C.4/L.152/Rev.1).

(c) A draft resolution by Venezuela (A/C.4/L.153),the operative part of which provided that the GeneralAssembly would:

(1) reaffirm the principles stated in its resolution334(IV) on its competence with regard to the examina-tion of information transmitted in accordance withArticle 73e of the Charter by the Powers administeringNon-Self-Governing Territories;

(2) appoint a special committee to carry out during1952 a detailed study of (a) the factors which shouldbe taken into account in deciding whether a territory isor is not a territory whose people have not yet attaineda full measure of self-government; (b) the cases ofterritories which have, in the opinion of certain Admin-istering Powers, attained a full measure of self-govern-ment;

(3) postpone consideration of chapters XI and XII6

of Part One and the whole of Part Four of the reportof the Special Committee on Information Transmittedunder Article 73e of the Charter until the SpecialCommittee had submitted its report; and

(4) instruct the Special Committee to complete itsreport not later than 15 August 1952.

5 Part Four of the Report concerned factors whichshould be taken into account in determining whether ornot a territory is self-governing.

6 These chapters dealt with the question of the Terri-

tories to which Chapter XI of the Charter applied andwith the question of the cessation of transmission ofinformation.


Uruguay proposed an amendment (A/C.4/L.154) tothe Venezuelan draft resolution to add a provision thatthe proposed special committee should study the possi-bility of setting up a permanent body with instructionsto report to the Assembly and that it should in eachcase propose resolutions with respect to the points re-ferred to in sub-paragraphs 2(a) and 2(b) of the Vene-zuelan draft (see above).

Following consultations between the sponsorsof the draft resolutions, a joint draft resolution(A/C.4/L.155) was submitted by Denmark,Guatemala, Pakistan and Venezuela and adoptedby 36 votes to none, with 9 abstentions, at theCommittee's 218th meeting on 7 December.

By it, the Fourth Committee resolved to es-tablish a sub-committee to:

(1) study, in the light of the Special Committee'sreport and of the discussions in the Fourth Committee,the basic and general factors to be taken into accountin deciding whether a territory is or is not a territorywhose people have not yet attained a full measure ofself-government; and (2) consider the advisability of•establishing procedures for the further examination ofthe problem, taking into account the draft resolutions onthe subject which had been submitted to the FourthCommittee.

The Sub-Committee, composed of representa-tives of Australia, Cuba, Denmark, France, Guate-mala, Iraq, the United States and Venezuela, heldeleven meetings. In its report (A/C.4/L.180 andCorr.2) it presented a list of factors which itconsidered should be taken into account in decid-ing whether a territory is or is not a territorywhose people have not yet attained a full measureof self-government and recommended a draft res-olution for adoption by the Assembly (see be-low).

This draft resolution was adopted by the Com-mittee at its 241st meeting on 9 January 1952with one modification. The Sub-Committee hadproposed the appointment of an ad hoc commit-tee of eight members to carry out further studiesand report to the Assembly. The Fourth Commit-tee decided, in order to maintain a balance be-tween the Administering Powers and other coun-tries, that Burma and Belgium should be ap-pointed members of the ad hoc committee, withAustralia, Cuba, Denmark, France Guatemala,Iraq, the United States and Venezuela. The Com-mittee adopted the draft resolution, as revised,in a roll-call vote of 39 to none, with 6 absten-tions.

The resolution proposed by the Committee(A/2057) was adopted by the General Assemblyat its 361st plenary meeting on 18 January with-out further discussion, by 46 votes to none, with7 abstentions, as resolution 567(VI). It read:

"The General Assembly,"Recalling that, in resolution 334(IV) adopted on 2

December 1949, the General Assembly invited any spe-cial committee which might be appointed on informa-tion transmitted under Article 73e of the Charter toexamine the factors which should be taken into accountin deciding whether any territory is or is not a territorywhose people have not yet attained a full measure ofself-government,

"Having examined the report on the matter preparedby the Special Committee on Information transmittedunder Article 73e of the Charter,

"Having undertaken a revision of the above-men-tioned factors,

"Considering that the production of a more definitivelist of factors involves protracted and complex studieson the basis of more complete information than wasavailable in 1951,

"1. Decides to take as a basis the list of factorsdrawn up at the sixth session of the General Assembly,which list is annexed to the present resolution;

"2. Invites the Members of the United Nations totransmit in writing to the Secretary-General, by 1 May1952, a statement of the views of their governments onthe factors which should be taken into account in de-ciding whether a territory is or is not a territory whosepeople have not yet attained a full measure of self-government;

"3. Appoints an Ad Hoc Committee of ten memberscomprising Australia, Belgium, Burma, Cuba, Den-mark, France, Guatemala, Iraq, the United States ofAmerica and Venezuela, in order to carry out a furtherstudy of the factors which should be taken into accountin deciding whether a territory is or is not a territorywhose people have not yet attained a full measure ofself-government;

"4. Invites the Ad Hoc Committee to take into ac-count all information available, including that trans-mitted to the Secretary-General on the reasons whichhave led certain Administering Members to cease totransmit information on certain of these territories, andto submit a report to the General Assembly at itsseventh regular session;

"5. Invites the Secretary-General to convene the AdHoc Committee in order that it may begin its work oneweek before the opening of the 1952 session of theCommittee on Information from Non-Self-GoverningTerritories."

ANNEXFactors which should be taken into account in de-

ciding whether a territory is or is not a territory whosepeople have not yet attained a full measure of self-government.

INTRODUCTION1. The territories which are covered by Chapter XI

of the Charter are those territories whose people havenot yet attained a full measure of self-government. Itmay be noted that the expression "self-government" isqualified in the Charter by the words "full measure" inthe English text, "complètement" in the French text, and"plenitud" in the Spanish text.

2. The task of the General Assembly, at present, is toindicate the factors which should be taken into accountin determining whether the result of the advancement


of the people of any given territory is such that thatterritory has reached a stage of self-government whereit falls outside the scope of Article 73e of the Charter.

3. The condition under which the provisions ofChapter XI of the Charter cease to apply will be thatthe inhabitants of the territory have attained, throughpolitical advancement, a full measure of self-government.The fulfilment of this condition may be achieved byvarious means, involving in all cases the expression ofthe free will of the people. The two principal meansare (a) the attainment of independence and (b) theunion of the territory on a footing of equal status withother component parts of the metropolitan or othercountry or its association on the same conditions withthe metropolitan or other country or countries. Theextent to which the provisions of Article 73e continueto apply in the case of territories which have becomeneither independent nor fully integrated within anotherState but which have already attained a full measureof self-government in their internal affairs is a questionwhich merits further study.

4. The two principal forms of political advancement,mentioned in the above paragraph, call for the consider-ation of different factors in determining whether aterritory has or has not reached a stage of self-govern-ment where it falls outside the scope of Article 73e ofthe Charter.

5. Accordingly, the General Assembly lists under twoseparate headings below the factors to be taken intoaccount, stressing that the list cannot be regarded asexhaustive or definitive, and that a single factor orparticular combination of factors cannot be regarded asdecisive in every case. Whether the peoples of a territoryshould be regarded as having reached a stage of self-government where there is no longer any obligation totransmit information should be solved in the light ofthe conditions enumerated under either of the twoheadings, taking into account the circumstances of eachparticular case, which will need to be studied separately.

6. Nevertheless, the General Assembly considers thatthe essential factors to be taken into account in decidingwhether a Non-Self-Governing Territory has attained afull measure of self-government are the following:

(i) Political advancement: Political advancementof the population sufficient to enable them to decideupon the future destiny of the territory with dueknowledge;

(ii) Opinion of the population: The opinion ofthe population of the Territory, freely expressed byinformed and democratic processes, as to the status orchange in status which they desire.

7. These factors apply both to Non-Self-GoverningTerritories which have achieved independence and toNon-Self-Governing Territories which have freely unitedor associated themselves on a footing of equal statuswith other component parts of the metropolitan or othercountry or countries. In the latter case, however, thefollowing factors are also essential and should be takeninto account:

(i) Legislative representation: Representation with-out discrimination in the central legislative organs onthe same basis as other inhabitants and regions;

(ii) Citizenship: Citizenship without discrimina-tion on the same basis as other inhabitants.

I. FACTORS INDICATIVE OF THE ATTAINMENTOF INDEPENDENCE OR OTHER SEPARATESYSTEM OF SELF-GOVERNMENT

A. GENERAL1. Political advancement: Political advancement of the

population sufficient to enable them to decide upon thefuture destiny of the territory with due knowledge.

2. Opinion of the population: The opinion of thepopulation of the territory, freely expressed by informedand democratic processes, as to the status or change instatus which they desire.

B. INTERNATIONAL STATUS1. Independence: The attainment of independence by

the territory, or complete control over its external rela-tions and internal affairs.

2. Eligibility for membership in international organi-zations: Eligibility for membership in the United Na-tions or for membership or associate membership inother international organizations; representation by dele-gates selected by the territorial government.

3. General international relations: Power to enter intodirect relations of every kind with other governmentsand with international institutions, and to negotiate,sign and ratify international conventions.

4. Voluntary limitation of sovereignty: Degree towhich the sovereignty of the territory is limited by itsown free will when that territory has attained indepen-dence or other separate system of self-government.

C. INTERNAL SELF-GOVERNMENT1. Territorial government: Freedom from control or

interference by the government of another State inrespect of the internal government (legislature, execu-tive, judiciary) and administration of the territory.

2. Participation of the population: Effective participa-tion of the population in the government of the territoryby means of an adequate electoral and representativesystem.

3. Economic and social jurisdiction: Complete auton-omy in respect of economic and social affairs.

II. FACTORS INDICATIVE OF THE FREE ASSOCI-ATION (WHETHER IN A FEDERAL OR UNI-TARY RELATIONSHIP) OF A TERRITORY ONEQUAL STATUS WITH OTHER COMPONENTPARTS OF THE METROPOLITAN OR OTHERCOUNTRY

A. GENERAL1. Political advancement: Political advancement of the

population sufficient to enable them to decide upon thefuture destiny of the territory with due knowledge.

2. Opinion of the population: The opinion of thepopulation of the territory, freely expressed by informedand democratic processes, as to the status or change instatus which they desire.

3. Geographical considerations: Extent to which therelations of the territory with the capital of the centralgovernment may be affected by circumstances arising outof their respective geographical positions, such as separ-ation by land, sea or other natural obstacles.

4. Ethnic and cultural considerations: Extent to whichthe population are of different race, language or religionor have a distinct cultural heritage, interests or aspira-


tions, distinguishing them from the peoples of thecountry with which they freely associate themselves.

5. Constitutional considerations: Association (a) byvirtue of the constitution of the metropolitan country or(b) by virtue of a treaty or bilateral agreement affectingthe status of the territory, taking into account (i) wheth-er the constitutional guarantees extend equally to the as-sociated territory, (ii) whether there are constitutionalfields reserved to the territory, and (iii) whether thereis provision for the participation of the territory on abasis of equality in any changes in the constitutionalsystem of the State.

B. STATUS1. Legislative representation: Representation without

discrimination in the central legislative organs on thesame basis as other inhabitants and regions.

2. Citizenship: Citizenship without discrimination onthe same basis as other inhabitants.

3. Government officials: Appointment or election ofofficials from the territory on the same basis as thosefrom other parts of the country.

C. INTERNAL CONSTITUTIONAL CONDITIONS1. Suffrage: Universal and equal suffrage, free periodic

elections by secret ballot, freedom of choice of electoralcandidates.

2. Local rights and status: Equal rights and status forthe inhabitants and local bodies of the territory asenjoyed by inhabitants and local bodies of other partsof the country.

3. Local officials: Appointment or election of officialsin the territory on the same basis as those in other partsof the country.

4. Internal legislation: Complete legislative autonomyof the territory, by means of electoral and representativesystems, in all matters which in accordance with thenormal terms of association are, in the case of non-unitary systems, not reserved to the central government.

b. CESSATION OF THE TRANSMISSION OFINFORMATION

In its resolution 222(III),7 the General Assem-bly had stated that it considered it essential thatthe United Nations be informed of any changein the constitutional position and status of anyTerritory on which information had previouslybeen transmitted in accordance with Article 73eof the Charter as a result of which the responsiblegovernment concerned thought it unnecessary totransmit information in respect of that Territory.The Assembly asked the Members concerned tocommunicate within six months the appropriateinformation, including the constitution, legislativeact or executive order providing for the govern-ment of the Territory and the constitutional rela-tionship of the Territory to the government of theMetropolitan country.

In conformity with these provisions, the Neth-erlands Government informed the Secretary-Gen-

eral on 31 August 1951 that the NetherlandsAntilles and Surinam had ceased in its opinionto be Non-Self-Governing Territories within themeaning of Article 73e of the Charter. Conse-quently, it had decided to terminate, as of 1951,the transmission of information on these Terri-tories. It also transmitted an explanatory note onthe subject and a copy of the principal relevantarticle of the Netherlands Constitution as amendedin 1948, and a copy of the principal relevantarticles of the Interim Order and Constitution ofthe Netherlands Antilles (A/AC.35/L.55 andCorr.1.).

The representative of the Netherlands at the45th meeting of the Special Committee on 25October stated that, with regard to the OverseasTerritories in the Caribbean area, the NetherlandsAntilles and Surinam, lengthy conferences hadbeen held with representatives of the inhabitants.It had been decided that, in conformity with thewishes of the inhabitants, these Territories wouldbe incorporated in the Netherlands Kingdom onan equal footing with that part of the Kingdomwhich was situated in Europe. Thus, these Terri-tories had obtained a full measure of self-govern-ment, especially in the fields in which the obli-gation existed under Article 73e to transmit infor-mation to the Secretary-General, and the Nether-lands Government therefore no longer felt obligedto transmit such information.

The Committee, at its 46th and 49th meetingson 25 and 26 October 1951, discussed the infor-mation and a special representative in the Nether-lands delegation replied to the various questionsraised. Among others, the representatives ofFrance, Denmark and the United States expressedtheir satisfaction with the information and withthe answers supplied by the representative.

The representative of the USSR introduced adraft resolution (A/AC.35/L.77), proposing thatthe Committee should decide that no cessation ofthe transmission of information concerning anyNon-Self-Governing Territory could take placeuntil the Special Committee on Information Trans-mitted under Article 73e of the Charter had con-sidered all the data concerning the changes in thestatus of the given Territory, and had presentedto the General Assembly a recommendation thatArticle 73e cease to apply to the Territory in ques-tion. The representatives of Cuba, India, the Neth-erlands and the United States, however, questionedthe competence of the Committee to consider thisdraft resolution, and the Committee decided by

7 See Y.U.N., 1948-49, p. 724.


13 votes to 1, with 1 abstention, that it was notcompetent.

The representative of Cuba, supported by therepresentative of Mexico, submitted a draft reso-lution, by which the Special Committee woulddecide not to continue consideration of the com-munication and annexed note of the NetherlandsGovernment until it had been informed of thedecision of the General Assembly regarding thefactors which should be taken into considerationin order to decide whether a territory does ordoes not fall within the category of territorieswhose people have not yet attained a full measureof self-government.8 However, he later withdrewhis draft resolution in favour of a text submittedby the representatives of Denmark, India, the Phil-ippines and the United States.

By 7 votes to 4, with 3 abstentions, the Com-mittee adopted an amendment by India to thejoint draft resolution to specify that the perti-nent information was being transmitted to theGeneral Assembly "for any necessary action". Theamended draft resolution was subsequently adoptedas a whole by 10 votes to 1, with 4 abstentions.By it the Special Committee (A/AC.35/L.79), in-ter alia, having noted the information made avail-able and having been informed that a conferenceamong representatives of the Netherlands, Suri-nam and the Netherlands Antilles on an equalfooting was to be held in March 1952 to decideupon a system of co-operation for the commonaffairs of the three countries and the establishmentof a new constitutional order to replace the pres-ent interim arrangement,' took note of the com-munication of the Government of the Nether-lands. It transmitted this information, togetherwith its report on General Assembly resolution334(IV) and the summary records relating tothese questions, to the General Assembly for anynecessary action.

The Assembly considered the question of cessa-tion of transmission of information under Article73e of the Charter in respect of the NetherlandsAntilles and Surinam at the 205th to 211th and242nd meetings of its Fourth Committee on 19,21-23 and 26 November 1951 and 10 January1952 and at its 361st plenary meeting on 18January 1952. The Committee had before it a jointdraft resolution submitted by Cuba, Denmark,India, the Philippines and the United States (A/-C.4/L.197). During the brief discussion the pointsraised were substantially those raised in the SpecialCommittee (see above). The sponsors of the draftresolution accepted an amendment proposed by

Venezuela (A/C.4/L.198), the object of whichwas to ensure that information communicated bythe Netherlands Government would be made avail-able to the ad hoc committee established underresolution 567(VI).9

The representative of Venezuela also proposedverbally that the Assembly should go on record ashaving received the information from the Nether-lands, on the ground that to note it would implya positive action that was too strong in the cir-cumstances. The representative of Venezuela andthe sponsors of the draft resolution, however,accepted an alternative proposal by Iraq to read"Having regard to the information made availableby the Government of the Netherlands."

A separate vote was taken on paragraph 3 ofthe operative part of the draft resolution and itwas retained by 41 votes to 5, with 2 abstentions.The remainder of the joint draft resolution, asamended, was adopted by the Fourth Committeeby 44 votes to none, with 4 abstentions, and theresolution, as a whole, was adopted by 41 votes tonone, with 7 abstentions (A/2057).

The General Assembly at its 361st plenarymeeting on 18 January 1952 adopted the draftresolution (A/2057) proposed by the FourthCommittee without change and without discussion.Paragraph 3 was adopted by 41 votes to 7, with 8abstentions, and the draft resolution, as a whole,by 47 votes to none, with 9 abstentions. The reso-lution (568(VI)) read:

"The General Assembly,"Having regard to its resolution 222(III) of 3 No-

vember 1948 requesting the Members concerned tocommunicate information regarding any change in theconstitutional position and status of a Non-Self-Gov-erning Territory, as, a result of which the responsiblegovernment concerned thinks it unnecessary to trans-mit information in respect of that Territory underArticle 73e of the Charter,

"Considering that it has received from the Secretary-General a copy of the communication dated 31 August1951 from the Netherlands Government, which statesthat, in the opinion of that Government, the Nether-lands Antilles and Surinam have now ceased to be Non-Self-Governing Territories within the meaning of Article73e of the Charter of the United Nations, and thatconsequently the Netherlands Government has decidedto terminate the transmission to the Secretary-Generalof information under Article 73e concerning theseTerritories,

"Having regard to resolution 448(V) of 12 December1950, by which the General Assembly requested theSpecial Committee on Information transmitted underArticle 73e of the Charter to examine such informationas may be transmitted and to report thereon to theGeneral Assembly,

8 See pp. 605-10.9 See p. 608.


"Having regard to the information made available bythe Government of the Netherlands relating to theNetherlands Antilles and Surinam and to the reportof the Special Committee,

"Having decided to appoint an Ad Hoc Committee tocarry out a further study of the factors which shouldbe taken into account in deciding whether a territoryis or is not a territory whose people have not yet at-tained a full measure of self-government,

"Having been informed that a conference amongrepresentatives of the Netherlands, the NetherlandsAntilles and Surinam on an equal footing is to be heldin March 1952 to decide upon a system of co-operationfor the common affairs of the three countries and theestablishment of a new constitutional order to replacethe present interim arrangement,

"1. Reaffirms the statement contained in paragraph1 of General Assembly resolution 222(III) welcomingany development of self-government that may havetaken place in Territories previously enumerated asNon-Self-Governing;

"2. Expresses its appreciation to the Government ofthe Netherlands for communicating full information incompliance with paragraph 3 of General Assembly reso-lution 222(I I I ) , and decides to transmit this informa-tion to the Ad Hoc Committee created by resolution567(VI) of the General Assembly;

"3. Considers that in 1952 the General Assemblyshould examine the communication of the NetherlandsGovernment in the light of any report prepared by theAd Hoc Committee, and taking into account whatevernew arrangements as to common affairs may be de-veloped by the 1952 conference of representatives ofthe Netherlands and of the Netherlands Antilles andSurinam;

"4. Decides to include in the agenda of the nextregular session of the General Assembly the questionof the cessation of the transmission of information underArticle 73e of the Charter as regards the NetherlandsAntilles and Surinam.

2. Revision of the Standard Form forTransmission of Information under

Article 73e

On 12 September 1950,10 the Special Committeeon Information Transmitted under Article 73e ofthe Charter appointed a sub-committee to revisethe Standard Form adopted by the General Assem-bly11 to guide Administering Members in pre-paring such information. The Committee decidedthat the revision should be made in a mannerwhich would facilitate the preparation of studiesby the Secretary-General based on this informa-tion.

The Sub-Committee held its first meeting on27 September 1951 and submitted a report (A/-AC.35/L.66), in which it referred directly to the

Special Committee certain comments and proposalsby the United Kingdom concerning the transmis-sion of information.

These proposals, which formed an appendix tothe report, were that, in order to relieve theadministrations of certain of the smaller Territoriesunder United Kingdom administration of theburden of preparing information annually, trans-mission of information under Article 73e shouldbe made every third year in the case of 22 ofthese Territories.

At its 48th meeting on 26 October, a numberof representatives, among them those of Australia,Belgium, Cuba, France, India, the Philippines andthe United States, stated that they recognized theburden which might be imposed upon the Ad-ministering Powers in the smaller Territories bythe annual preparation of information. On theother hand, they pointed out that information onthese Territories was of great value to the SpecialCommittee, since the importance of the problemsof principle involved could not be decided by thequestion of actual size. The point was also madethat any change would involve amendments toGeneral Assembly resolutions and might be inter-preted as signifying that the General Assemblyattached less importance to the provisions ofChapter XI of the Charter than was indicated bydecisions taken in and after 1946.

The USSR representative opposed the adoptionof the United Kingdom proposals, on the groundthat it would reduce the volume of informationtransmitted to the Secretary-General under Article73e.

The representative of the United Kingdom laterwithdrew the suggestion, and reserved the positionof his Government in any subsequent considera-tion of the question by the General Assembly.

On 2 October 1951 the Sub-Committee submit-ted its second report (A/AC.35/L.67), containinga revised text of the Standard Form.

At its 38th and 39th meetings on 12 and 15October 1951, the Special Committee discussedthe second report of the Sub-Committee on theRevision of the Standard Form (A/AC.35/L.67).The report contained a revised text, which hadbeen unanimously approved by the Sub-Committeefor submission to the Committee.

During the discussion in the Committee, therepresentatives of Australia, Belgium and France

10 See Y.U.N., 1950, p. 677.11 For text, see Y.U.N.,1947-48, pp. 721-24.


made statements reserving the positions of theirGovernments in regard to the transmission ofinformation not related to statistical and otherinformation of a technical nature relating to eco-nomic, social and educational conditions, as wellas transmission of information on the applicationof the Declaration of Human Rights in the Terri-tories under their administration. In this con-nexion, the representative of Australia submittedan oral amendment to insert in the revised Stand-ard Form a specific statement that "any itemswhich are not related to statistical and otherinformation of a technical nature relating to eco-nomic, social and educational conditions in theTerritory are optional".

The representatives of Belgium and France, whospoke in support of the amendment, felt that itwould serve to clarify an ambiguity in the StandardForm and that the statement of principle wouldguarantee sound co-operation. The representativesof India, Mexico, Pakistan and the Philippines, onthe other hand, felt that inclusion of such a state-ment was undesirable; the representative of thePhilippines questioned whether the statement wasintended to preclude the submission of informa-tion on the protection of human rights. The repre-sentative of Australia replied that his amendmentwas related to several items in the revised StandardForm which clearly had political implications. Theamendment was rejected by 7 votes to 5, with 3abstentions.

The Committee, however, accepted a numberof other drafting changes proposed orally by therepresentatives of Belgium, Denmark and theNetherlands during the general debate. Mostrepresentatives expressed general satisfaction withthe revised Standard Form. The representative ofthe Netherlands emphasized that conditions variedin different Territories and that the categories ofthe Standard Form were not applicable to everyTerritory in respect of which information was tobe submitted. The representatives of Australia,Belgium and the United Kingdom, among others,stated that they accepted the revised StandardForm as a guide in the preparation of informationto be submitted to the Secretary-General, althoughthey did not feel bound to provide data on all theitems listed in the form. The representative of theUSSR, however, felt that the revised Form wasunsatisfactory since it attempted to reduce thevalue of the information transmitted by the Ad-ministering Powers and that it created a situationin which the Administering Powers could arbitra-rily decide what information to transmit.

The Committee adopted, at its 39th meeting on15 October, by 11 votes to 2, with 2 abstentions,the Standard Form revised by the Sub-Committee(A/AC.35/L.67), as amended by the Committee.It also adopted, by 11 votes to 1, with 3 absten-tions, a joint draft resolution by India, the Philip-pines, the United Kingdom and the United States(A/AC.35/L.68), by which the General Assemblywould be asked to adopt formally the revisedStandard Form. By this resolution, the Assemblywould also invite Members responsible for thetransmission, of information under Article 73e ofthe Charter to render information as complete andup to date as possible and for this purpose to takeinto account the sections of the revised form. Thetext of this resolution, together with the StandardForm as revised, was approved by 12 votes to 1,with 2 abstentions.

The question was considered by the Assembly'sFourth Committee, at its 214th meeting on 28November and by the General Assembly at its352nd plenary meeting on 7 December 1951.

Introducing in the Fourth Committee that partof the Committee's report (A/1836) which dealtwith the revised Standard Form, the representativeof the Philippines, speaking as Chairman of theSub-Committee, drew attention to the fact that anew feature of the Standard Form, as revised, wasthe requirement that annual information on con-ditions in Non-Self-Governing Territories shouldbe prefaced by a general survey of trends in thefields of advancement mentioned in Article 73eof the Charter. Further, information on humanrights was no longer classified as a political matter,but, in accordance with the General Assembly'sdirective (resolution 327(IV)), was now includedin that part dealing with social conditions, andthe furnishing of information on this question hadbeen made obligatory.

Support for the revised Standard Form wasexpressed during the debate by the representativesof Australia, Brazil, Burma, Cuba, India, theUnited Kingdom and the United States. Severalrepresentatives, including those of Burma, Cubaand India, welcomed the revised Form, stating thatit enabled a fuller picture of development to begiven. The representatives of Burma and Indiaexpressed the hope that the Administering Powerswould supply information in the optional as wellas the obligatory category. The representatives ofBrazil and Cuba, among others, welcomed thetransference from the optional category to theobligatory category of questions dealing with theobservance of human rights.


The Fourth Committee, at its 214th meetingon 28 November, by 38 votes to none, with 7abstentions, approved the draft resolution sub-mitted by the Special Committee, together withthe revised Standard Form and appendices (A/-1836). This, in turn, was adopted by the GeneralAssembly, at its 352nd plenary meeting on 7December 1951, by 46 votes to none, with 5abstentions.

Before adopting the draft resolution in plenarysession (resolution 551(VI)) the Assembly ac-cepted a drafting change, proposed by the repre-sentative of the Dominican Republic (A/1998).By this action, the Assembly transferred to aseparate section the request for information on thestatus of women, to conform with the ProvisionalQuestionnaire of the Trusteeship Council.

Resolution 551(VI) read:

''The General Assembly,''Considering the importance of the advancement of

the peoples of Non-Self-Governing Territories as setforth in the Declaration contained in Chapter XI ofthe Charter of the United Nations,

"Considering that the information transmitted by theMembers responsible for the administration of Non-Self-Governing Territories is of increasing interest tothe General Assembly,

"Noting that this information, which has been com-piled in accordance with the Standard Form for theguidance of Members annexed to resolution 142(II)adopted by the General Assembly on 3 November 1947together with the supplemental information placed atthe disposal of the Secretary-General, is becoming ofincreased value,

"Considering, nevertheless, that this Standard Formrequires adaptation in the light of experience,

"1. Decides that the Standard Form annexed to reso-lution 142(II) shall be replaced by the annexed text;

"2. Invites the Members responsible for the trans-mission of information under Article 73e of the Char-ter to undertake all necessary steps to render informationas complete and up to date as possible and for thispurpose to take into account the sections of the revisedStandard Form."

The text of the Standard Form, which wasannexed to Assembly resolution 551(VI), includedan explanatory preface, giving an historical accountof the decisions by the General Assembly whichled to the revision of the Standard Form. Thepreface also made, inter alia, the following points:

1. The Standard Form in some cases requests infor-mation relating to invariable conditions in the Territory,such as its area and geography. In these cases, therewould be no purpose in repeating information alreadyprovided.

2. Information requested on long-term governmentpolicies and administrative organization need normallybe provided once every three years; but when information

has been given on basic government policies, referenceto such information should be specific each year, even ifno change has occurred.

3. Information consisting of relevant statistics forthe year under consideration should be supplied in alldetail each year.

4. In respect of the statistics requested on some ofthe subjects, recommended patterns are given in theappendices. Territories may consider themselves free toprovide the information as dictated by their existingresources or practices.

5. Wherever relevant, statistics should be classified toshow the conditions and participation of the indigenousand non-indigenous populations (e.g., staff, land dis-tribution, school facilities). Information in particular isrequested where, by law or administrative practice, thereare any distinctions resulting from race or religion.

6. In cases where, under the provisions of any generalconvention on any economic, social or educational sub-ject, information is transmitted to a central internationalagency by Member States parties to such convention,and information which coincides with that requested inthe Standard Form is transmitted periodically to inter-national organizations operating under the aegis of theUnited Nations in accordance with standing arrange-ments, the transmission of a copy of such informationto the Secretary-General of the United Nations would beacceptable in discharge of the obligation under Article73e in respect of that subject. Wherever relevant in-formation exists in published form, there would be noneed for the government to reproduce that information.

The explanatory preface further invited Mem-bers to provide a survey of the principles andpractical measures showing general trends in theTerritories concerned, such as:

"(a) Advancement in the economic, social and edu-cational fields, including the participation of the inhabi-tants in the common examination of problems in thosefields;

"(b) Participation of the Territories in regional andfunctional commissions of the Economic and SocialCouncil, in organs of the specialized agencies, and inregional commissions or conferences, including researchorganizations;

"(c) Use of technical assistance of the United Nationsand the specialized agencies or from other internationalsources, including the manner in which such technicalassistance has been integrated into long-range develop-ment programmes in the Territories;

"(d) Action for the adoption, ratification or im-plementation of international agreements of particularconcern to the Territories."

The recommended patterns for statistics, givenin nine appendices to the annex to resolution551(VI), referred to:

(1) crops, forest products, livestock and fisheries;( 2 ) mineral production; (3) industrial production;(4) migrant labour; (5) crime, institutions, such aslabour and detention camps, reformatories and approvedschools, as well as the treatment of offenders; (6) med-ical and health facilities; (7) education; (8) culturalinstitutions; and (9) mass communications.


The text of the Standard Form, with the excep-tion of the explanatory preface and the appendices,summarized above, follows:

TERRITORIAL INFORMATION

Part I. — GENERAL INFORMATIONA. Geography

1. Location.2. Area.3. Topography.4. Climate.5. Statement of principal natural resources.

B. History

C. People1. Ethnic composition of population and general

population trends.2. Population statistics with break-down where pos-

sible by age groups, race, religion and sex.3. Immigration statistics.

D. Government (optional category)1. Statement indicating the status of the Territory,

the constitution, legislative act or executive order provid-ing for its government, and the nationality status of theinhabitants.

2. Description of the structure and powers of theterritorial government, including:

(a) Manner of appointing principal executiveofficers;

(b) Composition and powers of legislative orconsultative bodies;

(c) Extent of elective system, including quali-fications of voters;

(d) Structure of judiciary;(e) Extent of participation of indigenous and

non-indigenous inhabitants in the admin-istrative and judicial services of govern-ment and in legislative and advisory bodies.

3. Description of local government, includingextent of participation of indigenous and non-indigenousinhabitants.

4. Any significant events or projected developmentsin respect to the above matters, particularly such aswould increase the participation of the local inhabitantsin the government of the Territory.

Part II. — ECONOMIC CONDITIONSA. General

1. Description of general progress of economicdevelopment. *

2. Description of any special machinery for generaleconomic development, including information on theparticipation therein of representatives of the localinhabitants.

3. Estimate of investment during the period underreview, both public and private, including information,if available, on the source of investments.

B. Agriculture and Livestock1. Description of the administrative organization

primarily responsible for governmental activities relating

to agriculture and animal husbandry, with particularsof the budgets, functions and size of staff.

2. Description of land utilization and tenure inrespect of:

(a) Utilization of agricultural land: areas ofarable land, pastures, meadows, etc.;

(b) Land and water conservation and utiliza-tion, laws, regulations, organizations andpractices;

(c) Land ownership:( i ) Description of policies, laws and regu-

lations on the subject;( i i ) Area and types of land held by indi-

genous and non-indigenous inhabi-tants and the governments;

(iii) Types of land tenure;(iv) Types of renting systems;(v) Development programmes related to

the use and ownership of land andwater resources;

(d) Settlement, and laws affecting settlement.

3. Principal crops:(a) Area and production;(b ) Description of any substantial changes in

comparison with the period covered by theprevious information and causes of suchchanges.

4. Livestock:(a) Livestock statistics:

(i) Numbers;(ii) Production of livestock products.

(b) Programmes for the improvement of live-stock, organization and progress during theperiod under review, and development plansfor:

( i) Control of pests and diseases;(ii) Improvement of stock;

(iii) Improvement of pastures and watersupply.

5. Review of the existence and extent of agricul-tural indebtedness.

6. Assistance for agricultural production whetherprovided by governmental, co-operative or private insti-tutions, including assistance contemplated under develop-ment plans:

(a) Facilities and capital available for creditpurposes;

(b) Facilities for agricultural marketing, stor-age, grading, primary processing;

(c) Other forms of agricultural assistance, sup-ply of machinery, equipment, needs andfertilizers;

(d) Control of pests and diseases; organizationand progress during the period underreview.

7. Agricultural research and education:(a) Organization;(b) Progress during the period under review;

* Information on detailed changes is invited underthe succeeding items, and on the budgetary aspects ofdevelopment programmes under Public Finance.


(c) Contributions to any development pro-grammes described above.

8. Agricultural extension:(a) Organization;(b) Improvements initiated during the period

under review;(c) Major activities carried on, including con-

tributions of extension to any developmentprogrammes described above.

9. Agricultural development other than projectsincluded above:

(a) Basic programmes;(b) Progress during the period under review.

C. Forestry

1. Description of the objectives of forest policyand of progress in its application during the periodunder review.

2. Description of the administrative organizationprimarily responsible for governmental activities relatingto forestry and timber production, with general parti-culars of the budgets, functions and size of staffs.

3. Description of progress during the period underreview in respect of:

(a) Inventories of forest resources;(b) Conservation and management;(c) Areas exploited and volume of output;(d) Production and marketing of forest pro-

ducts.

4. Forestry training and research:(a) Organization;(b) Progress during the period under review.

5. Forest development, including re-afforestation:(a) Basic programmes;(b) Progress during the period under review.

D. Fisheries

1. Description of the administrative organizationprimarily responsible for governmental activities relatingto fisheries, including the budgets, functions and sizeof staff.

2. Description of fisheries, including statistical dataof fisheries in respect of:

(a) Resources;(b) Catch or landings, fishermen, craft, gear;(c) Processing: preserving, freezing, curing;(d) Marketing.

3. Fisheries surveys and research:(a) Organization;(b) Progress during the period under review.

4. Fisheries development:(a) Basic programmes, institutions;(b) Progress during the period under review.

E. Mining and Mineral Oils

1. Description of the administrative organizationprimarily responsible for governmental activities relatingto geological surveys and the supervision of mining

operations, including the budgets, functions and sizeof staff.

2. Description of mining operations in respect of:(a) Mineral rights and ownership;(b) Regulations concerning prospecting and

concessions and royalties;(c) Processing;(d) Statistics of production.

3. Indication of ownership (indigenous and non-indigenous) of operating mines.

4. Geological surveys:(a) Organization;

( b ) Progress during the period under review.

5. Mining development:(a) Basic programmes;

(b) Progress during the period under review.

F. Power

1. Description of the administrative organizationprimarily responsible for governmental activities relatingto the development and distribution of power, includingsummary of extent of public and private ownership ofplants.

2. Statistics of hydro-electric and other sources ofpower, including capacity of installed power (in kilo-watts or horse-power) as well as the annual output forindustrial and domestic consumption.

3. Power development:(a) Basic programmes;(b) Progress during the period under review.

G. Industry

1. Description of administrative organization prim-arily responsible for governmental activities for thepromotion of industrial developments and handicrafts.

2. Statistics of industrial production in respect of:(a) Food processing;(b) Metals;(c) Textiles;(d) Chemicals;(e) Other manufacturing industries;(f) Other industries.

3. Distribution of ownership of industrial plants(indigenous and non-indigenous).

4. Description of handicrafts, rural or village indus-tries, in respect of:

(a) Chief types;

(b) Forms of assistance provided by the govern-ment;

(c) Forms of labour (women, children, part-time, etc.).

5. Industrial development:(a) Basic programmes;(b) Progress during the period under review.

H. Transport and Communications

1. Summary statistics relating to transport, includ-ing in appropriate cases tonnage and passengers tran-


sported, if possible in metric tons and passenger-kilometres, in respect of:

(a) Road transport;(b) Railways;(c) Air transport;(d) Inland waterways;(e) Sea-borne shipping.

2. Summary statistics relating to communications:(a) Postal service;(b) Telephone;(c) Telegraph;(d) Radio;(e) Communications not elsewhere classified.

3. Developments:(a) Basic programmes:(b) Progress during the period under review.

I. Public finance

1. Description of budgetary system:(a) Territorial;(b) Provincial, municipal or other local author-

ities.

2. Statement of revenue and expenditure underprincipal categories, in respect of the Territory as awhole, with, when appropriate, indications of therevenue and expenditure of principal local authorities.Indicate separately, wherever available, budget estimatesrelated to economic development programmes.

3. Statement of assets and liabilities.4. Description of the system of taxation, including

rates for individuals and corporations, and, if relevant,for indigenous and non-indigenous taxpayers.

J. Banking and Credit

1. Description of:(a) Type of currency;(b) Banking and credit facilities;(c) Bank rates;(d) Balance of payments and control of foreign

exchange.

K. International Trade

1. Statistics of imports and exports by quantityand value, showing chief groups of articles and directionof trade (if possible, by main groups according to theagreed international standard classification).

2. Description of:(a) Customs regulations and tariff structure;(b) Import and export restrictions.

3. List of commercial agreements entered intoduring the period under review.

Part III. — SOCIAL CONDITIONSA. General

Description of the social problems of race andcultural relations.

B. Human Rights1. Description of the manner in which human

rights, in accordance with the principles set forth in the

Universal Declaration of Human Rights, are protectedby law, particularly in respect of:

(a) Legal principles and procedures;(b) Basic legislation and its application;(c) Anti-discrimination legislation.

C. Status of Women

General information on the status of women.

D. Labour and Employment Conditions

1. Description of labour policy and generalproblems.

2. Description of the administrative organizationprimarily responsible for governmental activities relatingto the inspection of labour conditions, the settlement ofdisputes, relations with trade unions and the operationof employment exchanges, with particulars of the bud-gets, functions and size of staff.

3. Statistics of the principal categories of wage-earners, including employments and occupations, averagerates of wages, hours of work, rest-days and holidays.

4. Description, with statistics, of:(a) Unemployment;(b ) Under-employment;(c) Seasonal employment;(d) Migrant labour.

5. Description of occupational organizations inrespect of:

(a) Legal status of employers' and workers'organizations;

(b) System of organization;(c) Relations with metropolitan and interna-

tional organizations;(d) Numbers and membership, including list

of the principal organizations.6. Description of methods of settling disputes, with

statistics of disputes, man-days lost, methods of settle-ment.

7. Welfare activities in industry and agriculture.8. Description of vocational training and appren-

ticeship.9. List of the principal laws and regulations for the

protection of labour and of International Labour Con-ventions applied to the Territory. Where information isfurnished annually to the International Labour Organisa-tion on these subjects, it need not be repeated if a copyis transmitted to the Secretary-General in discharge ofobligations under Article 73 e of the Charter.

E. Co-operative Societies

1. Description of the administrative organizationprimarily responsible for the assistance of co-operativesocieties, with particulars of the budgets, functions andsize of staff.

2. Description of existing co-operative societies inrespect of:

(a) Number and types;(b) Membership;(c) Scale of operations.

F. Standard of Living

1. Statistics of retail prices of principal items ofconsumption.


2. Sample surveys of family budgets:(a) Sampling procedure;(b) Structure of expenditure and consumption.

3. Cost of living:( a ) Index figures;(b) Methods of computation.

4. National income statistics:(a) Structure of national income;(b) Distribution of income among income

groups and among ethnic groups;(c) Methods of computation.

G. Town and Rural Planning and Housing

1. Description of conditions and problems, in-cluding information on overcrowding and on the avail-ability and costs of building materials.

2. Basic programmes and administrative machineryfor the improvement of housing conditions in urbanand rural areas.

3. Arrangements for the interchange of researchand experience in building techniques, including demon-stration projects and training of skills.

4. Governmental financial and technical assistancefor house construction, home ownership and low-renthousing projects.

H. Social Security and Welfare

1. Description of the administrative organizationof social protection and the coverage benefits andfinancing of social insurance in respect of:

(a) Health;(b) Unemployment;(c) Industrial accidents and diseases;(d) Old age and disability;(e) Maternity benefits.

2. Description of the administrative organizationprimarily responsible for social welfare, with particularsof the budgets, functions and size of staff and provisionfor the training of both paid workers and volunteers.

3. Description of social welfare and relief problemsand policies, including information on:

(a) Protection and care of expectant mothersand of children;

(b) Juvenile delinquency;(c) Care of the aged;(d) Care and rehabilitation of the handicapped;(e) Prevention of prostitution;(f) Community welfare.

I. Prevention of Crime and Treatment of Offenders

1. Crime statistics, with comments on any sub-stantial change in offences of particular relevance to thecircumstances of the Territory.

2. Description of penal administration, with infor-mation on:

(a) Prison population;(b) Special correctional institutions;(c) Prison discipline;

(d) Systems of remission, payment of prisonlabour, extra-mural employment, etc.;

(e) After-care of offenders.

J. Public Health

1. Description of administrative organization prim-arily responsible for governmental activities in respectof public health and sanitation.

2. Statistics of medical and health staff, public andprivate.

3. Statistics of expenditure for public health withparticulars of:

(a) Recurrent expenditure;(b) Capital expenditure;(c) Expenditure for work carried out by other

than Public Health Department, includingsanitation;

(d) Proportion of public health expenditure tototal expenditure of the Territory (statingwhether the calculation is based on recurrentexpenditure only, recurrent and capitalexpenditure, or any other figure);

(f) Expenditure of missionary and philanthro-pic organizations, if there is no objection ontheir part.

4. Description of medical services with particularsand statistics of government and non-government insti-tutions of a general or specialized character, whether fortreatment or for research.

5. Description of:(a) Qualifications and conditions required, for

practising, of medical practitioners, phar-macists, dentists, nurses or other medicalauxiliary personnel;

(b) Institutions (and other facilities in andoutside the Territory) available for thetraining of its medical and auxiliary per-sonnel, indicating length of programmes,qualifications for courses, functions per-formed after training, and number trainedper year.

6. Description of the demographic situation, in-cluding statistical data on birth and death rates.

7. Description of the state of health and nutritionwith information on dietary conditions, epidemic andendemic diseases; diseases of social importance and thosedue to nutritional deficiency.

8. Principal causes of death, including infant andmaternal mortality.

9. Description of Public Health developments, in-cluding programmes and progress made during theperiod under review in the following fields:

(a) Waste disposal systems;(b) Water supply systems to urban and rural

communities;(c) Measures for the inspection of foodstuffs;(d) Disease control programmes, indicating

specific diseases, including nutritional defi-ciency, areas covered, number and type ofhealth personnel, methods employed;

( e ) Measures taken to reduce infant mortalityand to preserve maternal health.


Part IV. — EDUCATIONAL CONDITIONS

A. General

Description of educational conditions, includinginformation on the extent of free education and com-pulsory education.

B. Educational Administration

1. Description of the administrative organizationprimarily responsible for governmental activities con-cerning education, including information on:

(a) Educational administration directed by theTerritorial government;

(b) Educational administration directed by localauthorities;

(c) Relations with missionary and other philan-thropic organizations;

(d) Participation of the inhabitants in theformulation of educational policy and theadministration of education;

(e) School inspection.

2. Statistics of expenditure for education withparticulars of:

(a) Recurrent expenditure;(b) Capital expenditure;(c) Proportion of expenditure on education to

total expenditure of the territory (statingwhether the calculation is based on recur-rent expenditure only, recurrent and capitalexpenditure or any other figure);

(d) Financial assistance from the metropolitangovernment;

(e) Expenditure of local authorities on edu-cation;

(f) Expenditure of missionary and philan-thropic organizations if there is no objectionon their part.

C. Structure of the Educational System

1. Description of the following institutions, in-cluding information on the average age at entrance andleaving, curricula, including teaching about the UnitedNations, language of instruction, text books, fees, schol-arships, equality of opportunity for different communities(racial, urban and rural):

(a) Pre-primary schools;(b) Primary schools;(c) Secondary schools;(d) Technical and vocational schools;(e) Universities and other institutions of higher

education;(f) Teacher-training institutions;(g) Special schools.

2. Statistics of the above institutions, teachers andpupils.

D. Adult Education

Description of adult and community educationmovements, including literacy campaigns, with informa-tion on the work of literature bureaux and the provisionof reading material.

E. School Buildings and Equipment

Statement of problems and account of progressmade in their solution, including a description of schoolbuildings and equipment, their capacity and generalcondition.

F. Youth Organizations

Description of youth associations and clubs, thetraining of youth leaders, social and welfare activitiesfor youth and social service activities by youth organi-zations (if not treated under III H, 2, "Social welfare").

G. Cultural Institutions

Description of the following institutions:(a) Libraries;(b) Museums;(c) Institutions for the encouragement of arts

and crafts (if not treated under II G, 4,"Handicrafts");

(d) Institutions or legal provisions dealing withthe preservation of indigenous and otherhistorical monuments and relics; archaeo-logical excavations; and activities in thesefields;

(e) Other institutions.

H. Protection of Nature: Flora and Fauna

I. Information on Educational Development

(a) Basic programmes;(b) Progress during the period under review.

J. Mass Communications

Description of the following, with statistics:(a) Newspapers, periodicals and other printed

material in indigenous and non-indigenouslanguages, and the conditions of theirpublication;

(b) Theatres, cinemas;(c) Radio broadcasting.

Part V. — ANY PICTORIAL MATERIAL

3. Conditions and Development inNon-Self-Governing Territories

a. ECONOMIC CONDITIONS

The Special Committee in 1950 had agreed12

that at its 1951 session it would pay special atten-tion to economic conditions and development inNon-Self-Governing Territories. It had furtheragreed on a list of topics which would form thebasis of discussion within that general study. TheGeneral Assembly had approved (resolution 445(V)) these arrangements and had invited thespecialized agencies concerned to collaborate withthe Secretary-General in the study of problems ofthe prices of tropical export crops and arrange-

12 See Y.U.N., 1950, pp. 697-89.


ment for their marketing, migrant labour inAfrica, the development of co-operative societiesin peasant communities and the economic value ofpreventive medicine.

The Special Committee discussed this item atits 31st to 38th and 45th meetings from 3-12October and on 24 October 1951. It had before itstudies prepared by the United Nations Secretariaton the following subjects:

Economic objectives and general aspects of develop-ment programmes (A/AC.35/L.32 and Add.1); inform-ation on standards of living (A/AC.36/L.56 andCorr.1); general conditions of agricultural production(A/AC.35/L.33); trends in fisheries development (A/-AC.35/L.34 and Add.1); agricultural credit and dataon co-operative societies (A/AC.35/L.48); marketing ofagricultural products (A/AC.35/L.45 and Corr.1); gen-eral aspects of land distribution (A/AC.35/L.50); set-tlement policies (A/AC.35/L.61); general programmesof industrial development (A/AC.35/L.44); miningeconomy (A/AC.35/L.29 and Corr.1); transport facili-ties (A/AC.35/L.46); education for rural welfare (A/-AC.35/L.43); organization of rural health services(A/AC.35/L.42); and labour analysis (A/AC.35/L.53).

The Committee also examined special reportsby the Food and Agriculture Organization (FAO) andthe International Labour Organisation (ILO). FAOsubmitted reports on fats, oil and oilseeds (A/AC.357-L.38); cotton (A/AC.35/L.41); rubber (A/AC.35/-L.41); food consumption and nutrition (A/AC.35/L.39and Add.1); certain aspects of fisheries industries inseveral Non-Self-Governing Territories (A/AC.35/-L.41); forestry policy (A/AC.35/L.3.7); and the eco-nomic importance of forest reserves (A/AC.35/L.41).

ILO submitted reports on problems concerning theestablishment of co-operative movements and govern-ment action for their solution (A/AC.35/L.49);migrant labour (A/AC.35/L.40); and ILO action inrelation to programmes for the training of workers(A/AC.35/L.52).

The Committee also took into consideration,inter alia, the relevant resolutions of the Economicand Social Council.

The Committee in its debate reviewed the eco-nomic policies, practices and progress of economicdevelopment achieved in the Non-Self-GoverningTerritories.

During the discussion of this item, the repre-sentative of the USSR stated that in the Non-Self-Governing Territories administered by Bel-gium, France and the United Kingdom in Africa,the tribal system prevented any political, economicand social progress and that the policy of theAdministering Powers was aimed at maintainingthat tribal system. As in the African Territories,so in Alaska, Puerto Rico, the Hawaiian Islandsand Samoa under the United States administration,the indigenous populations enjoyed no politicalrights, and their legislative, executive and judicialorgans and the organs of local government were

not based on democratic principles. He citedfigures which, he alleged, showed that gold, silver,copper and other metals were being exported fromNorthern Rhodesia and the Gold Coast in in-creasing quantities while the yields of foodstuffs inthe Territories had fallen off sharply and theUnited Kingdom Government had failed to ensurethat the population had enough food. The UnitedStates had confined the economy of Puerto Ricoto production and export of sugar cane and,although Puerto Rico had an agricultural economy,it was unable to meet its own food requirementsbecause of one-sided and distorted development.A similar situation existed in Hawaii, he said.

On the basis of these facts and others which hehad quoted, taken from the information transmit-ted under Article 73e of the Charter for the years1950 and 1951, and also from the legislation ofa number of Non-Self-Governing Territories, hewas of the opinion that the inescapable conclusionmust be drawn that the countries which boreresponsibility for the administration of Non-Self-Governing Territories had failed to carry out therequirements of the United Nations Charter inrespect of such Territories, and that they had con-demned the indigenous populations of those Ter-ritories to an existence characterized by starvationand abject poverty under conditions of total lackof rights and utter ignorance. The AdministeringPowers, he said, were not promoting the poli-tical progress of the Non-Self-Governing Terri-tories, and had failed to discharge their obligationsconcerning development towards self-government;they had also failed to take into satisfactoryaccount the natural political aspirations of theindigenous populations of the Non-Self-GoverningTerritories; nor had they helped those populationsto achieve the progressive development of theirown political institutions. The AdministeringPowers had also failed to promote the economic,social and educational advancement of the indi-genous populations of the Non-Self-GoverningTerritories for which they were responsible; theyhad failed to take the necessary measures to ensurethat the native cultures of the indigenous popula-tions were respected throughout the Territories,and to provide just treatment for those peoplesand protect them from abuses.

The representative of the United Kingdomstated that the facts used by the USSR had beendistorted and were generally without foundation.For instance, the periods cited by the USSR asexamples were a time of severe drought in Southand Central Africa. The United Kingdom had


bought food from all over the world and hadthereby averted a famine in the Territories. Con-cerning exports, the exports from the Gold Coastwere the responsibility of the African growersthemselves and, indeed, constituted an importantaspect of their development programme and shouldnot be termed as British exports.

The United States representative, also in answerto the USSR, stated that in every one of the UnitedStates Non-Self-Governing Territories there was acomplete executive, legislative and judicial systembased on law and affording the citizens of thoseTerritories every civil right enjoyed by otherAmerican citizens. Far from a monoculture inPuerto Rico and Hawaii having adverse effects,the fact was that any area of the world was likelyto gain when it produced those commodities forwhich it was best suited. In Puerto Rico, forexample, an acre of land under sugar produced sixor seven times as much in purchasing power forother commodities as when those commoditieswere produced locally.

A Sub-Committee was established at the 36thmeeting of the Special Committee with broadterms of reference to prepare a special report oneconomic conditions and development containingconclusions which might be drawn in the light ofthe Committee's discussions.

The Sub-Committee, composed of representa-tives of Brazil, France, India, the Philippines, theUnited Kingdom and the United States, held sevenmeetings from 12-20 October. Its report (A/-AC.35/L.69/Add.2) was considered by the Spec-ial Committee at its 45th meeting on 24 Octoberand approved (A/1836(Part Three)), with minoramendment, by 15 votes to 1.

In its review of economic conditions, the SpecialCommittee in its report noted with satisfactionthat declarations of policy made by the Adminis-tering Members referring to concrete programmesof development in Non-Self-Governing Territoriesand the information provided by AdministeringMembers on the objectives they were pursuing inthese development programmes were in harmonywith the international obligations undertaken bythose Members under the Charter.

The Committee was aware of the many difficul-ties to be overcome in economic development:lack of knowledge of resources; poverty of naturalresources in some regions; ill-health and under-nourishment; educational deficiencies and short-ages and deficiencies in technical skills. Moreover,many Territories had suffered from an unbalancedexport economy and the lack of development of

the internal market, together with the devastationand dislocation caused by the war. It was alsonecessary to develop some of the basic requisitesof economic development, such as: transport andcommunications; power resources; water supplies;basic social services; and agricultural and industrialresearch, extension services and experimentalstations.

The Committee stressed the value of interna-tional collaboration, in particular through the ex-panded technical assistance programme, in devel-oping the economies of the Territories. It recog-nized the progress which had been made and theincreasing participation of the indigenous peoplesin economic and social reforms and in the direc-tion of their own affairs. It noted the commend-able development programmes being carried outin the Territories by the Administering Powersand the considerable sums of money made avail-able to the Territories through various forms ofinvestment. Nevertheless, these sums had oftenproved insufficient to start a chain reaction ofeconomic development. The Committee consid-ered that it might often be desirable to concen-trate development programmes in those areaswhere quick, substantial results might be antici-pated and that the capital provided should be di-rected largely towards the establishment of (1)non-self-liquidating projects designed to strengthenthe basis of territorial economies, or (2) pilotschemes to test the feasibility of new forms ofeconomic development. Of outstanding import-ance, the Committee stated, was the associationof the people of the Territories in the planningof economic programmes, in the general super-vision of their execution and in the managementof separate undertakings.

The Committee cautioned that efficiency wouldfail if it introduced new elements of social dis-organization and that it was particularly import-ant to avoid introducing enterprises or techniqueswhich would tend to encourage or perpetuate dis-crimination on grounds of race or creed.

The Committee considered that the economicdevelopment of the large majority of Non-Self-Governing Territories depended essentially on theproper use of their animal and vegetable resources,which, in turn, depended on the proper utiliza-tion of land. One of the primary objectives ofagricultural development, in general, it was agreed,should be to supply the people with a moreample and better-balanced diet.

In the African Territories south of the Sahara,it stated, the primary need was to secure better


living conditions and to adapt the indigenousagricultural economy to the situations created bychanges in the distribution of population, bettercontrol over animal and plant diseases, and theintroduction of commercial crops. In the Terri-tories of North Africa and the Mediterranean,with their rapidly increasing populations, the ma-jor problems of agricultural development werethe control of water resources for irrigation pur-poses, the bringing of new areas into cultivation,and the introduction of modern methods of cult-ivation, involving the extension of present effortsto secure more stable conditions for the semi-nomadic populations. In the Caribbean Terri-tories, economic development was largely depend-ent on the production and marketing of the chiefexport crops. In the Territories of South-East Asia,there was a need for diversifying agricultural pro-duction by the development of new secondarycrops for export and by increasing food produc-tion for local consumption; although prices forthe chief agricultural exports had been relativelyhigh in that area, it was noted, the local foodsituation remained difficult.

The Committee considered as an essential partof agricultural policy the establishment and im-plementation of a sound and comprehensive forestconservation and utilization policy, which, itstated, should be closely co-ordinated with soiland water conservation policies. It also made sug-gestions with regard to the provision of agricul-tural credit, the development of co-operative so-cieties, the marketing of agricultural products andthe distribution and tenure of land.

While the majority of the Non-Self-GoverningTerritories were likely to remain primarily agri-cultural in their basic economy, the Committeestated, most would benefit from an increased de-gree of industrial development. It pointed out thatthe Non-Self-Governing Territories produce 50per cent of the world production of bauxite, butdo not manufacture aluminium. They produce 54per cent of the world production of cocoa, butdo not manufacture cocoa powder or butter.Eighteen Territories produce 3,500,000 tons ofcane-sugar, but refine only a small proportion ofthis production. Territories rich in limestone andin clay import large quantities of building ma-terial. In many Territories growing cotton on alarge scale, the cotton-growers wear imported cot-ton goods. The Committee suggested that greaterindustrialization be achieved by establishing rural,village and cottage industries rather than by fos-

tering large urban concentrations which cause thedisplacement of the rural population.

The Committee stated that although, in many ofthe Territories, the amount of exploitable min-erals was negligible, in many others the mineswere the chief and most tangible assets. It recog-nized that the average return on capital investedin mining activities was not excessive, butthought that measures should be taken to ensurethat a higher proportion of the proceeds frommining operations remained in the Territoriesthrough, for example, the re-investment of profits,the provisions of local supplies for mining un-dertakings, and the payment of higher wages andsalaries to local inhabitants.

The General Assembly considered the questionof economic development in Non-Self-GoverningTerritories during the general debate of its FourthCommittee at its 205th to 211th meetings heldfrom 19-26 November, and specifically at thatCommittee's 214th meeting on 28 November1951.

During the general debate, the representativesof Burma, Chile, China, Iraq, the Philippines andthe United States, among others, stated that theSpecial Committee's report had dealt with thequestion very adequately. The representative ofthe United States thought that it very clearlypointed out the lines upon which the Non-Self-Governing Territories should be developed so asto increase their economic independence and im-prove their standards of living. The representativeof the Dominican Republic thought the reportshould be very useful both to the AdministeringPowers and to the peoples concerned, while therepresentative of Haiti was glad to see that itrevealed a more favourable attitude on the partof the Administering Members toward industrialdevelopment in the Territories.

The Cuban representative was of the opinionthat the report did not refer in sufficient detailto certain trade policies, and that the informationavailable had not been sufficiently complete toenable the Committee to formulate adequate con-clusions. The representative of Yemen thoughtthat the Committee had not considered the arti-ficial barriers which obstructed the economic de-velopment of the Territories.

It was suggested by the Indonesian representa-tive that it might be well for the Special Com-mittee to deal only with a few aspects of the totalproblem of economic development of Non-Self-Governing Territories at each session, since, in


his opinion, the total problem was too vast andintricate to be dealt with in one short session.The representative of Ecuador thought that theCommittee should not restrict itself to considera-tion of information supplied on living conditions,but should, in the future, recommend concrete so-lutions.

The representatives of China, Pakistan andYugoslavia stressed that, in all schemes of develop-ment, the rights of the people and their advance-ment should be the paramount consideration.Moreover, while it was right to link industry withagricultural development, the representative ofYugoslavia also stressed, as did other represent-atives, that it would be a mistake to regard in-dustrial development as merely complementary toagricultural development. He and the represent-atives of Brazil, Chile and China, among others,emphasized the importance of the participation ofthe peoples of the Territories in the planning, sup-ervision and execution of their own programmes.The representatives of Burma, Indonesia andVenezuela, among others, stressed that economicdevelopment in Non-Self-Governing Territoriesshould not be allowed to become a casualty ofdefence programmes.

The representative of Poland, in particular,stated that no real progress had been made inimproving economic conditions and that the Com-mittee had not condemned the deep-rooted causeswhich made real improvement under the colonialsystem impossible to achieve. He and the repre-sentatives of the Byelorussian SSR, Czechoslo-vakia, the Ukrainian SSR and the USSR chargedthat the natural wealth of the Territories was be-ing exploited without regard to the interests ofthe indigenous peoples.

The Fourth Committee, at its 214th meetingon 26 November 1951, without further debate,adopted (A/2057), by 39 votes to 5, with noabstentions, the resolution proposed by the Spe-cial Committee (A/1836). The Assembly, at the361st plenary meeting on 18 January 1952, with-out discussion, adopted it by 48 votes to 5, with1 abstention, as resolution 564(VI). It read:

"The General Assembly,"Noting the report prepared by the Special Commit-

tee on Information transmitted under Article 73e ofthe Charter on economic conditions and problems ofeconomic development in Non-Self-Governing Terri-tories,

"1. Approves the report of the Special Committee asa brief but considered indication of economic conditionsin the Non-Self-Governing Territories and the problemsof economic development;

"2. Invites the Secretary-General to communicate thisreport for their consideration to the Members of theUnited Nations responsible for the administration ofNon-Self-Governing Territories, to the Economic andSocial Council, to the Trusteeship Council and to thespecialized agencies concerned."

b. SOCIAL FACTORS OF ECONOMICDEVELOPMENT

The Special Committee also had before it pre-liminary analyses prepared by the Secretary-Gen-eral of information transmitted on certain socialfactors closely related to economic development.

These analyses were of information on:(1) the organization of rural health services (A/-

AC.35/L.42); (2) education for rural welfare (A/-AC.35/L.43), dealing particularly with problems ofcommunity education and agricultural extension work;(3) labour statistics (A/AC.35/L.53); (4) vital statis-tics (A/AC.35/L.57); and (5) settlement policies (A/-AC.35/L.61).

ILO had prepared a report on migrant labourin non-Metropolitan Territories (A/AC.35/L.40) and areport on other action undertaken by ILO in relationto programmes for the training of workers (A/AC.35/-L.52).

During the discussions at the 40th and 41stmeetings on 16 and 17 October, it became clearthat the Committee wished to consider social con-ditions and problems of social development inNon-Self-Governing Territories more fully at its1952 session. In general, the Committee consid-ered that more detailed studies on the subjectsbefore it should be prepared, including a study ofmethods of determining standards of living. Withregard to this study, the representatives of Indiaand Belgium, among others, pointed out the dif-ficulties of evaluating in terms of cash the stand-ard of living of peoples who did not depend ona money economy. The representatives of Franceand the United Kingdom agreed, but consideredit essential to establish a standard for assessingliving standards, since otherwise it would be im-possible to measure the effectiveness of develop-ment programmes. The Indian representative em-phasized the necessity of finding out whether en-hanced living conditions were really contributingto the happiness and contentment of the people.The Philippine representative hoped that subse-quent data supplied by the Administering Powerswould be fuller, more accurate and more up todate.

The representative of India thought that theCommittee, when considering social conditions in1952 should, among other things, consider in de-tail the organization of agricultural extension serv-ices so as to ensure that agricultural knowledge


should really be brought to the people and aclass of "white collar" agricultural officials shouldnot be created. The representatives of Belgium,France, India, the United Kingdom and the UnitedStates stressed the importance of proper organi-zation at the local level in the economic andsocial development of Non-Self-Governing Terri-tories.

Rural health services, the representative of theUnited Kingdom considered, must be linkedclosely to rural welfare education, since there ex-isted in Non-Self-Governing Territories a certainmeasure of Native prejudice against Western med-ical techniques. The Indian representative statedthat any attempt to improve rural health musttake into consideration the problems of nutritionas well. He also stressed that there was much scopefor research in indigenous medicines and homeo-pathy.

The advantages and disadvantages of the useof migrant labour were referred to by the repre-sentatives of the Netherlands and the UnitedKingdom. The representative of India thought ascheme should be devised to keep indigenous in-habitants from migrating to other Territories,which resulted in land being left uncultivated andfood production neglected. The representative ofMexico hoped that the Committee would considerthe question of migrant labour at its next session;he suggested that ILO might be asked to send avisiting mission to various Territories to investi-gate conditions on the spot and to make recom-mendations.

c. INFORMATION ON TECHNICAL ASSISTANCE

The General Assembly in 1950 (resolution444(V)) had invited Administering Membersneeding technical assistance for the economic, so-cial and educational advancement of their Non-Self-Governing Territories to apply for it and toreport as fully as possible on all such applicationsand on the manner in which technical assistancereceived had been integrated into the long-rangeterritorial development programmes.13

Accordingly, the Special Committee had beforeit a report prepared by the Secretary-General (A/-AC.35/L.59) setting out the technical assistancerendered or to be rendered in Non-Self-GoverningTerritories by the United Nations and the special-ized agencies from July 1950 to May 1951. TheCommittee was informed that, at the request ofthe Netherlands and the United Kingdom, tech-nical assistance in the form of fellowships, schol-arships or the provision of experts had been al-

located to Aruba (Netherlands Antilles), Suri-nam, British Honduras, Cyprus, Malaya, Jamaica,St. Lucia and Trinidad. In addition, a basic agree-ment had been negotiated in June for the provi-sion of technical assistance by the United Nations,the International Labour Organisation (ILO), theFood and Agricultural Organization (FAO), theUnited Nations Educational, Scientific and Cul-tural Organization (UNESCO), the InternationalCivil Aviation Organization (ICAO) and theWorld Health Organization (WHO) to Non-Self-Governing and other Territories administered bythe United Kingdom, in response to specific re-quests to be made by that State. Another agree-ment, concluded in July, provided for technicalco-operation between the United States and theUnited Kingdom with respect to the Territoriesadministered by the latter. Information relating tothe United Nations fellowships and scholarshipsprogramme had been sent by the United States toTerritories under its administration with the sug-gestion that they consider whether suitable candi-dates were available. Further, the United Stateshad itself allocated $38,250 under the Point Fourprogramme to the Metropolitan Vocational Schoolof Puerto Rico to further the vocational trainingof inhabitants of the British, French and Nether-lands Territories in the Caribbean area.

During the discussion at the 42nd and 43rdmeetings of the Special Committee on 18 and 19October 1951, the representatives of Brazil andthe United States drew the attention of the Com-mittee to the provisions in the basic Agreementbetween the United Nations and its specializedagencies and the United Kingdom by which sup-plementary agreements relating to technical assist-ance would be concluded directly with the agen-cies concerned by the Non-Self-Governing Terri-tories under United Kingdom administration.

While it was agreed that requests from theAdministering Members for technical assistancefor Non-Self-Governing Territories thus far hadbeen few, the fact that some had been made wasan encouraging sign.

During the general debate on the work of theSpecial Committee at the 205th to 211th meetingsof the Assembly's Fourth Committee, held from19-26 November, 1951, the representative of In-donesia welcomed the initiative shown by theUnited Kingdom concerning technical assistancein Non-Self-Governing Territories, and hoped thatthe example would be followed by others. Therepresentatives of Denmark, India and Uruguay

13 See Y.U.N., 1950, p. 697.


thought that one of the most promising aspectsof technical assistance for the Territories was theprovision of scholarships and fellowships.

d. EDUCATION IN NON-SELF-GOVERNINGTERRITORIES

The General Assembly in resolution 445(V)14

noted the intention of the United Nations Edu-cational, Scientific and Cultural Organization(UNESCO) to place before the Special Commit-tee for its consideration at its 1951 session docu-ments relating to the use of the indigenous ornational languages for teaching purposes anderadication of illiteracy.

Accordingly, in addition to analyses, preparedby the Secretary-General, of the information con-cerning education transmitted in 1951 (A/-AC.35/L.43 and L.47) the Committee had beforeit two interim reports submitted by UNESCO.The first (A/AC.35/L.62) dealt with the use ofvernacular languages in education and containedsections on: the state of UNESCO's studies (ma-terial requested, sources available, studies andplans); the situation as it appeared from materialavailable (Non-Self-Governing and Trust Terri-tories); policies; and solutions for certain partic-ular problems. The report stated that after themeeting of experts in November and December195115 UNESCO would be in a position to givemore complete information on the problems in-volved in Non-Self-Governing Territories, as wellas in the majority of the Member States facing asimilar linguistic situation.

The second report (A/AC.35/L.63) concernedmeasures for suppressing illiteracy which, it wassuggested, could be applied in Non-Self-Govern-ing Territories. The report dealt with operationsin the field of literacy directly concerning Non-Self-Governing Territories, activities of a widernature likely to interest Non-Self-Governing Ter-ritories, clearing-house activities, associated pro-jects in fundamental education, and other fieldoperations. The application of UNESCO's pro-gramme, the report concluded, had considerablyincreased over the past year, both through cen-tral authorities and through direct contact be-tween the Secretariat of UNESCO and local andindividual projects.

UNESCO also prepared for the Committee alist and short resume (A/AC.35/L.64) of activi-ties undertaken by it up to March 1951 whichit considered might be of interest to the Admin-istering Powers.

The Special Committee briefly reviewed thequestion of its 41st and 42nd meetings on 17and 18 October 1951. A representative ofUNESCO reviewed the activities of the organiza-tion in relation to the particular aspects of edu-cation before the Committee. The representativeof Egypt commented on the lack of statistics inthe report on measures for suppressing illiteracy.The Egyptian and Philippine representatives bothexpressed the fear that the meeting which wasto be held in November 1951 would concentrateon minor vernacular languages and dialects, andalso that it might tend to be superficial.

In response to questions by Egypt and the Phil-ippines, the representatives of Australia, Belgium,Denmark, France, the Netherlands and the UnitedKingdom, gave an account of actions taken bytheir Governments in regard to the Special Reporton Education approved by the General Assemblyin 1950. Their remarks concerned the distributionof the report, the steps taken to eradicate illiter-acy, the language of instruction and equality oftreatment. In view of the importance attached tothe whole question, it was decided to give furtherconsideration to the progress achieved in this fieldat the 1952 session of the Special Committee.

During the general debate on the work of theSpecial Committee at the 205th-211th meetingsof the Assembly's Fourth Committee, from 19-26November 1951, the representative of Uruguayconsidered that a great step had been taken inthe matter of education and the use of vernacularlanguages in the schools in Non-Self-GoverningTerritories. The representative of the Philippines,however, stated that almost no action on lastyear's major report on education (A/1303) hadbeen taken in the Territories. Only Australia andthe United States, he held, had given any heedto it. The representatives of the Ukrainian SSRand the USSR stated that, in their opinion, theMetropolitan Powers were making no effort tocombat the backward and illiterate state of theindigenous people and were instead intent onmaintaining the status quo.

e. INTERNATIONAL COLLABORATION INREGARD TO ECONOMIC, SOCIAL AND

EDUCATIONAL CONDITIONS

In resolution 445(V), the General Assemblyhad confirmed "its recognition of the importanceof international collaboration in regard to eco-

14

See Y.U.N., 1950, pp. 692-93.15

See under UNESCO.


nomic, social and educational conditions in Non-Self-Governing Territories as expressed in resolu-tion 331(IV)". In resolution 331(IV), the Gen-eral Assembly had invited the specialized agenciesto communicate annually to the United Nationsinformation on the progress of work undertakenby them which would be of service in Non-Self-Governing Territories. In response to this invita-tion, the Food and Agricultural Organization(FAO) submitted a report on its activities affect-ing Non-Self-Governing Territories, such as as-sistance in the improvement of government servi-ces, bringing governments together to discuss com-mon problems, and collaboration with otherUnited Nations agencies and with other inter-governmental bodies (A/AC.35/L.51); similarlythe United Nations Educational, Scientific and Cul-tural Organization (UNESCO) submitted a re-port on its activities of possible interest to Powersresponsible for the administration of Non-Self-Governing Territories (A/AC.35/L.64), whichemphasized the campaign by UNESCO againstracial prejudice.

The Secretary-General prepared documents deal-ing with United Nations relations with govern-ments (A/AC.35/L58), and with specializedagencies (A/AC.35/L.35), together with a sum-mary of international collaboration in regard toeconomic and social conditions in Non-Self-Gov-erning Territories (A/AC.35/L.65 and Add.1).

Appreciation of the collaboration of the special-ized agencies in the work of the Committee wasexpressed. The representatives of Cuba, India andMexico expressed appreciation of the activities ofUNESCO in relation to Non-Self-Governing Ter-ritories, and in particular, in the field of racerelations.

f. INFORMATION VOLUNTARILYTRANSMITTED

By resolution 218(III), the General Assemblyinvited the Secretary-General to prepare "annualsummaries of any material which the Membersmay have voluntarily transmitted under the op-tional category of the Standard Form". Accord-ingly, the Secretary-General prepared a documentsummarizing such information transmitted by theGovernments of Australia, Denmark, the Nether-lands and the United States (A/1835).

At the 48th meeting of the Special Committeeon 26 October, 1951, the representative of Indiaexpressed appreciation of the action taken bythose Administering Members which had volun-

tarily transmitted information in accordance withthe terms of that resolution. The representative ofNew Zealand pointed out that the absence in thedocument before the Committee of informationunder the optional category of the Standard Formnormally transmitted by his Government was duesolely to a delay in transmission, and that the in-formation would be transmitted to the Secretary-General in the near future for incorporation inan addendum to the report by the Secretary-Gen-eral.

During the general debate on information fromNon-Self-Governing Territories, which took placeat the 205th to 211th meetings of the GeneralAssembly's Fourth Committee from 19-26 No-vember, the issue arose as to whether or not itwas permissible for the Fourth Committee to dis-cuss the political advancement of these Territories.

At the 210th meeting, in the course of a state-ment by the representative of Egypt on conditionsin Morocco, the French representative intervenedand expressed the opinion that the Fourth Com-mittee should not discuss political conditions inthe Non-Self-Governing Territories. His interven-tion was supported by the representative of theUnited Kingdom, who contended that the FourthCommittee, in its discussion of information fromNon-Self-Governing Territories, was a technicalCommittee and as such was not entitled to dis-cuss political matters. On the other hand, the rep-resentatives of Cuba, Ecuador, Guatemala, India,Indonesia, Iraq and Uruguay maintained that,whereas the Special Committee might be limitedto the discussion of economic, social and educa-tional conditions in the Non-Self-Governing Ter-ritories, the Fourth Committee was entitled to dis-cuss this information in the larger perspective ofArticle 73 as a whole, including the political im-plications. The representative of Iraq submitteda draft resolution (A/C.4/L.139) which wouldinvite the Fourth Committee to resolve that it wasempowered to discuss political matters and polit-ical aspects in regard to Non-Self-Governing Ter-ritories. He accepted an amendment by Ecuadorto invite the Committee to reaffirm that in ac-cordance with the Charter it was empowered todiscuss these matters. The proposal was subse-quently submitted as a joint draft resolution (A/-C.4/L.140).

Certain representatives on the Fourth Commit-tee considered the Iraqi proposal to raise questionsof importance requiring introduction in writingand with full opportunity for consideration. Therepresentative of France accordingly proposed the


adjournment of the meeting and stated that hewished to refer the matter to his Government.The motion for adjournment was defeated by 24votes to 17, with 4 abstentions, and the represent-ative of France announced that he could not con-tinue to take part in a debate which he describedas wholly unconstitutional.

In subsequent discussions, a number of repre-sentatives, including the representatives of Den-mark, Norway, the United Kingdom and theUnited States, requested full consideration of theproposed resolution in view of its far-reachingimportance.

A working solution was reached at the nextmeeting of the Fourth Committee which was heldon 26 November. The Chairman pointed out thathe wished to respect freedom of speech in theFourth Committee and would invite the Commit-tee not to deviate from the agenda laid down forit by the General Assembly. Certain political ques-tions were so closely linked to economic prob-lems affecting Non-Self-Governing Territories thatthe latter could not be discussed without referenceto the former. As a working arrangement, he in-vited speakers to confine their remarks to essen-tial points and to deal with political questionsonly if they were related to economic problems.Following this appeal from the Chair, the repre-sentative of Iraq stated that, while he did notwithdraw his proposal, he would not ask that itbe put to the vote for the time being. Similarly,the representatives of Ecuador and Uruguay agreednot to press the Fourth Committee to take anyaction on the issue before it. In these circum-stances, the general debate on information fromNon-Self-Governing Territories continued withoutany further discussion on the right of the repre-sentatives to comment on political conditions inNon-Self-Governing Territories.

g. INFORMATION ON HUMAN RIGHTS INNON-SELF-GOVERNING TERRITORIES

By resolution 446(V),16 the General Assemblyhad invited "the Members responsible for the ad-ministration of Non-Self-Governing Territories toinclude, in the information to be transmitted tothe Secretary-General in 1951 under Article 73eof the Charter, a summary of the extent to whichthe Universal Declaration of Human Rights isimplemented in Non-Self-Governing Territoriesunder their administration"; and had further, re-quested "the Special Committee on Informationtransmitted under Article 73e of the Charter to

include in its report to the General Assembly atits sixth session such recommendations as it maydeem desirable relating to the application in Non-Self-Governing Territories of the principles con-tained in the Universal Declaration of HumanRights".

The Committee at its 43rd and 44th meetingson 19 and 22 October 1951 had before it a reporton the application of human rights in Non-Self-Governing Territories administered by the UnitedStates (A/1823/Add.1), and a document pre-pared by the Secretary-General on problems relat-ing to human rights in Non-Self-Governing Ter-ritories (A/AC.35/L.60).

The Secretary-General's report noted that re-plies had been received from the Netherlands, theUnited Kingdom and the United States either inthe form of a letter or under the optional cate-gory of the Standard Form. The report also drewattention to the Yearbook on Human Rights pub-lished in 1951 in which part II was devoted tobasic laws on human rights in Trust and Non-Self-Governing Territories.

During the discussion, the representatives of thePhilippines and Pakistan expressed their disap-pointment at the response of the AdministeringPowers, the representative of the Philippinesstating that it was in the interests of the Adminis-tering Powers to supply the fullest possibleinformation. The representatives of Belgium,France, and the United Kingdom, while agreeingwith this statement, thought that the question ofhuman rights was outside the scope of the SpecialCommittee and that the subject should be con-sidered by United Nations bodies dealing with thesubject. The representatives of Brazil and Indiawondered how the question of economic, socialand educational conditions could be discussed ade-quately without touching on the question of hu-man rights.

A draft resolution on information concerninghuman rights in the Non-Self-Governing Terri-tories was proposed by Mexico and the Philip-pines (A/AC.35/L.70) and was later replaced bya revised draft resolution proposed by Brazil,Cuba, Egypt, India, Mexico and the Philippines(A/AC.35/L.73). The United States proposed anamendment to the revised draft to add a para-graph stating:

"Hopes that, in the provision of such informa-tion, a significant step forward will be taken in

16

See Y.U.N., 1950, p. 680.


the furtherance in all countries of the principlesset forth in the Universal Declaration of HumanRights."

The words "in the provision of such inform-tion" were voted on separately, at the request ofthe United Kingdom, and retained by 9 votes to•6, with one abstention. The amendment as a wholewas adopted by 9 votes to 2, with 5 abstentions.The revised draft resolution as amended wasadopted by 10 votes to 5, with one abstention.It read:

"The Special Committee,

"Taking note of General Assembly resolution 446(V) of 12 December 1950,

"Noting, further, that with a few exceptions, theMembers responsible for the administration of Non-Self-Governing Territories have not included in theinformation submitted to the Secretary-General in 1951under Article 73 e of the Charter, a summary of theextent to which the Universal Declaration of HumanRights is implemented in their Non-Self-GoverningTerritories:

"Expresses its appreciation to those AdministeringMembers which have complied with the General Assem-bly's resolution;

"Requests all the Administering Members concernedto transmit the necessary information on the observanceof human rights in their Non-Self-Governing Territoriesto the Secretary-General in 1952, in accordance withPart III, B. 1, of the Revised Standard Form, and takinginto account the discussions held in the Special Com-mittee on the subject at its forty-third and forty-fourthmeetings on 19 and 22 October 1951;

"Decides to inform the General Assembly that it willconsider the formulation of recommendations relating tothe application in Non-Self-Governing Territories of theprinciples contained in the Universal Declaration ofHuman Rights as part of its special consideration ofsocial advancement in Non-Self-Governing Territoriesat its next session;

"Hopes that, in the provision of such information, asignificant step forward will be taken in the furtherancein all countries of the principles set forth in theUniversal Declaration of Human Rights."

During the general debate on the work of theSpecial Committee at the 205th to 211th meetingsof the Assembly's Fourth Committee from 19-26November, the representatives of China and Pak-istan expressed their regret at the poor responseto Assembly resolution 446(V). The representa-tive of Haiti stated that such information wasnecessary to obtain a balanced and objective pic-ture of conditions in the Non-Self-Governing Ter-ritories. The Indonesian representative regrettedthat the Administering Members had applied thecolonial clause to the Universal Declaration ofHuman Rights.

4. Participation of Non-Self-GoverningTerritories in the Work of the Special

Committee

At the 218th meeting of the General Assem-bly's Fourth Committee on 3 December 1951, therepresentative of Cuba introduced a joint draftresolution (A/C.4/L.146), submitted jointly byBurma, Cuba, Ecuador, Egypt and India, by whichthe General Assembly would invite the SpecialCommittee on Information Transmitted underArticle 73e of the Charter17 to examine and reporton the possibility of associating the Non-Self-Governing Territories in its work. The represent-ative of Cuba stated that the purpose of the draftresolution was that the Non-Self-Governing Ter-ritories should be given an opportunity of partici-pating directly in the work of the Special Com-mittee as associate members, as they did in certainof the regional economic commissions and spe-cialized agencies.

The sponsors accepted certain drafting changessuggested by the United Kingdom representative,which would, among other things, have the Com-mittee examine the possibility of associating theNon-Self-Governing Territories "more closely" inits work.

In addition to the sponsors, the representativesof Australia, Brazil and the USSR expressed sup-port for the draft resolution. It was criticized,however, by the representatives of Belgium andFrance.

The representative of Belgium stated that itwas inappropriate to speak of associating the Ter-ritories in the work of the Special Committeewhen all the work of that Committee was, in fact,based on information supplied in respect of theTerritories. Further if the Administering Powersthought it advisable to send representatives of theTerritories to the Committee, they could do so.The French representative stated that, under theCharter and under the Constitution of France,only the French Government was entitled to com-pose its delegation to the United Nations and todecide whether to associate representatives of theNon-Self-Governing Territories under its adminis-tration with its delegation to the Special Com-mittee.

The Fourth Committee adopted (A/2057) theamended draft resolution in a roll-call vote of 43

17 The title of the Special Committee was changed at

the Assembly's sixth session into "Committee on Infor-mation Transmitted under Article 73 e of the Charter",see pp. 81-82.


to 2, with 2 abstentions. The General Assemblyadopted it, without further discussion, by 47 votesto 2, with 7 abstentions, at its 361st plenary meet-ing on 18 January 1952, as resolution 566(VI).It read:

"The General Assembly,"Considering that point 9 of the Secretary-General's

Memorandum of points for consideration in the develop-ment of a twenty-year programme for achieving peacethrough the United Nations advocates the use of theUnited Nations to promote by peaceful means theprogress of dependent, colonial or semi-colonial peoplesto a position of equality with Member States of theUnited Nations,

"Considering that resolution 494(V) adopted by theGeneral Assembly on 20 November 1950 requests theappropriate organs of the United Nations to considerthose portions of the Secretary-General's memorandumwith which they are particularly concerned,

"Considering that the report of the Special Committeeon Information transmitted under Article 73e of theCharter recommends the use of technical assistance fromthe United Nations as a means of promoting the eco-nomic advancement of the peoples of the Non-Self-Governing Territories,

"Considering that the direct association of the Non-Self-Governing Territories in the work of the UnitedNations and of the specialized agencies is an effectivemeans of promoting the progress of the peoples ofthose Territories towards a position of equality withMember States of the United Nations,

"1. Notes that special provisions exist in the consti-tutions of some of the specialized agencies and of theregional commissions of the United Nations permitting,on the proposal of the Administering Member con-cerned, the admission to those agencies and commissionsof Non-Self-Governing Territories as "associate mem-bers";

"2. Commends the practice referred to in the pre-ceding paragraph;

"3. Invites the Committee on Information from Non-Self-Governing Territories to examine the possibility ofassociating the Non-Self-Governing Territories moreclosely in its work and to report the results of itsexamination of this problem to the General Assembly atits seventh regular session in connexion with the Assem-bly's consideration of the Committee's future."

5. Future Work of the SpecialCommittee

The Special Committee on Information Trans-mitted under Article 73e of the Charter hadbefore it a working paper prepared by the Secre-tary-General (A/AC.35/L.71) setting out a pre-liminary plan of studies for 1952 on social condi-tions and development.

The Committee also had before it a paper sub-mitted by the United States, specifying topicswhich might be considered by the Special Com-

mittee during its 1952 session. As an additionalsubject for consideration to be inserted in boththe plan of studies prepared by the Secretary-General and the list of topics submitted by therepresentative of the United States, the represent-ative of India proposed "Race relations—problemsand solutions", together with details of its variousaspects. To the latter the representative of Cubaproposed certain additional items. Furthermore,the representative of the Philippines proposed"Problems of human rights" as an addition to thelist of topics. He pointed out that the SpecialCommittee had already decided to give attentionto this question in its social studies for 1952.

The Committee decided, on the recommendationof the representatives of India and the UnitedStates, that, in regard to the choice of topics tobe treated under the general subject of social con-ditions and development and in regard to anysuggestion for a provisional agenda of the Com-mittee for 1952, the Secretary-General should pre-pare plans, taking full account of the discussionson this item in particular, and the general trendof discussions during the whole session of theCommittee.

The question of the future work of the Spe-cial Committee was considered by the Assembly'sFourth Committee at its 218th meeting on 3 De-cember 1951. The Committee had before it aworking paper by the Secretariat (A/C.4/-L.147), prepared in response to the request ofthe Special Committee, which detailed a choiceof subjects which might be treated under thegeneral topic of social conditions and development.The Committee also had before it a joint draftresolution by the Netherlands, Pakistan and thePhilippines (A/C.4/L.138), by which the Gen-eral Assembly would take note of the report ofthe Special Committee (A/1836) and approvethe arrangements proposed by the Special Com-mittee for its work in 1952.

In connexion with the new studies outlined bythe Secretariat (A/C.4/L.147), the Fourth Com-mittee was informed that the Assembly's FifthCommittee had approved the estimates for theDepartment of Trusteeship and Information fromNon-Self-Governing Territories as recommendedby the Advisory Committee on Administrative andBudgetary Questions, involving a reduction of$34,300 in the estimates proposed by the Secretary-General, but that the Fifth Committee had invitedthe Secretary-General to submit supplementary es-timates for new tasks assigned to the Department,should he consider it necessary to do so.


The joint draft resolution by the Netherlands,Pakistan and the Philippines (A/C.4/L.138) wasapproved without objection by the Fourth Com-mittee and in turn by the General Assembly, with-out discussion (resolution 565(VI)), at its 361st

plenary meeting on 18 January 1952. By thisresolution, the Assembly took note of the reportof the Special Committee (A/1836) and approvedits arrangements for its work in 1952.

B. THE QUESTION OF SOUTH WEST AFRICA

In resolutions 65( I ) , 141(II), 227(III) and337(IV,) the General Assembly had expressed itsopinion that South West Africa should be placedunder the International Trusteeship System andthat a Trusteeship Agreement should be submittedin respect of the Territory.

At its fifth session (resolution 449(V) of 13December 1950),18 the Assembly urged the Gov-ernment of the Union of South Africa to take thenecessary steps to give effect to the advisoryopinion on the question rendered by the Inter-national Court of Justice on 11 July 1950 at theAssembly's request (resolution 338(IV)).

The Court, in its opinion, had stated that SouthWest Africa continued to be a Territory underthe international Mandate assumed by the Unionof South Africa following the First World Warand that the provisions of Chapter XII of theCharter, which provide for an International Trus-teeship System, were applicable to South WestAfrica in the sense that they provided a meansby which the Territory might be brought underthat System. The Court had also stated that theUnion of South Africa, acting alone, was notcompetent to modify the international status ofthe Territory but that the competence to deter-mine or modify that status rested with the Unionacting with the consent of the United Nations.The Court had further stated that the Union ofSouth Africa continued to have international obli-gations (such as submitting reports and transmit-ting petitions to the United Nations) under theMandate. It had declared, however, that it wasnot compulsory under Chapter XII of the Char-ter for the Union of South Africa to place theTerritory of South West Africa under the Trus-teeship System.

In its resolution 449(V) the Assembly estab-lished a five-member Committee to confer withSouth Africa concerning the procedural measuresnecessary for implementing the Court's opinion,and to report to the Assembly's sixth session. Asan interim measure, the Ad Hoc Committee onSouth West Africa was authorized to examinethe report of the Territory's administration cover-

ing the period since the previous report, as wellas petitions and any other matters relating to theTerritory that might be transmitted to the Sec-retary-General. The Assembly in this resolutionalso reiterated its former recommendations thatSouth West Africa be placed under the Interna-tional Trusteeship System. It declared that thenormal way of modifying the Territory's interna-tional status would be by means of a TrusteeshipAgreement in accordance with the provisions ofChapter XII of the Charter.

1. Report of the Ad Hoc Committee onSouth West Africa

The Ad Hoc Committee on South West Africa,consisting of the representatives of Denmark,Syria, Thailand, the United States and Uruguay,held its first meeting at United Nations Head-quarters, on 6 March 1951.

On 6 March, the Union of South Africa wasinformed by the Committee that it was ready toconfer with it concerning the procedural measuresnecessary for implementing the Court's advisoryopinion. On 21 May, South Africa informed theCommittee that it accepted the invitation to dis-cuss the question of South West Africa, and sub-sequently designated its representative.

On 17 October 1951, the Committee reported(A/1901) to the General Assembly. Up to that

date it had held fifteen meetings, thirteen in pri-vate. The Committee stated that it was deemedadvisable, in the interest of its work, for the Com-mittee to meet in private, since it was negotiatingwith the Union of South Africa. The whole ne-gotiations had, however, been made public in theCommittee's report.

At the outset of the consultations, the repre-sentative of the Union of South Africa asked theChairman for rulings on:

(1) whether the Committee considered itself com-petent to examine certain new facts which had becomeavailable after the publication of the Court's opinion;

18 See Y.U.N., 1950, pp. 821-22.


and (2) whether the Committee considered itself em-powered to consider any and all proposals presentedwhich related to the implementation of the Court'sopinion.

On the first point, the Chairman stated that ifthe purpose of presenting the new facts was tobring about a reconsideration of the Court's opin-ion, it would be outside the Committee's compe-tence to examine those facts because the GeneralAssembly had accepted the Court's opinion. Ifthe new information was submitted for otherreasons, the Committee would be able to considerit. On the second point, he stated that any pro-posal which dealt with procedural measures forimplementing the Court's opinion would be inorder, but that the Committee must hear the pro-posals before it could judge whether they did infact relate to such measures.

The representative of the Union of SouthAfrica said that it was an acknowledged fact thatthe Court's opinion was purely advisory and didnot have the same status as a verdict of a court oflaw. Consequently it was not binding either uponthe United Nations or upon the Union of SouthAfrica. His Government did not agree with manyof the views expressed in the Court's opinion, butit realized that negotiations would be impossibleif it were to maintain a rigid stand.

The representative of the Union presented aproposal, according to which, as subsequentlyamended, the Union Government would re-assumeits international obligations under the League ofNations Mandate by negotiating a new interna-tional instrument with France, the United King-dom and the United States—the three remainingmembers of the Principal Allied and AssociatedPowers of the First World War. It was explainedthat this proposal was made not because theUnion Government had any legal obligations to-ward those Powers but because they had beenconnected with the original Mandate for SouthWest Africa. If those Powers were willing to be-come "the other party" to a new contractualagreement, the United Nations would then callupon them to negotiate the instrument and theUnion of South Africa would be directly respon-sible to them and not to the United Nations.

In an effort to meet the wishes of the UnitedNations, the Union Government would agree tofinal confirmation of the instrument by the UnitedNations. The instrument would provide for effec-tive supervision of the Union Government's obli-gations by incorporating a clause whereby SouthAfrica would accept "judicial supervision" by theInternational Court through access to the Court

in cases of non-compliance. The Union Govern-ment later stated that it would be prepared toagree that a complaint to the Court might bemade by any two of the three Powers becomingthe other party to the proposed new contractualagreement.

The Committee considered the proposal unac-ceptable because it did not allow for a full im-plementation of the Court's advisory opinion, inparticular it made no provision for the supervisionof the administration of South West Africa bythe United Nations as foreseen in the Court'sopinion. The Committee considered itself boundby its terms of reference to implement the Court'sopinion which explicitly required the submissionof annual reports and stated that the United Na-tions should supervise the discharge by the UnionGovernment of at least one group of its obliga-tions. The South African suggestion for a pro-cedure eliminating reports, the Committee said,could not be considered as within its terms ofreference.

The Committee then presented a counter-pro-posal, the principal feature of which, it stated,was to provide for implementation of the Court'sopinion through the United Nations by a pro-cedure as nearly as possible analagous to thatwhich had existed under the League of Nations.Under the proposed procedure, the General As-sembly would establish a fifteen-member Commit-tee on South West Africa, to include the Unionof South Africa, with supervisory functions similarto those previously exercised by the Council ofthe League of Nations with respect to Mandatedterritories. That Committee would, in turn, estab-lish a Special Commission on South West Africato undertake the functions and responsibilities ofthe former Permanent Mandates Commission, es-pecially the examination of annual reports and pe-titions concerning South West Africa.

The Union Government, on 20 September 1951,informed the Committee that this proposal didnot give due weight to its viewpoint. It wouldhave the effect of imposing on the Union Gov-ernment obligations even more extensive thanthose implicit in the Mandates System. For ex-ample, it would confer certain rights in respect ofSouth West Africa on States now Members ofthe United Nations which had no such rightsunder the League of Nations. With regard tothe submission of reports on South West Africa,the Union Government was unable to accept theprinciple proposed, and in this respect recalledits letter of 11 July 1949 to the Secretary-General,


in which it had informed the United Nationsthat it would be unable to submit further reportson the Territory. On that occasion the UnionGovernment had explained that while it had sub-mitted a report in a spirit of goodwill, co-opera-tion and helpfulness, this report had been utilizedas a basis for unfounded and unjustified criticismand censure of the Union Government's adminis-tration. Not only did this cause much resentmentbut the misunderstandings to which it gave rise inthe Union and in South West Africa underminedthe harmonious relations which had hitherto ex-isted and which was so essential to successful ad-ministration. It was pointed out that there wasalways available, however, essential informationon the Territory in the form of statistics, depart-mental reports, records of the South West AfricanLegislature, Blue Books and other governmentalpublications. If the Committee decided to explorethe Union Government's proposal further theUnion Government, it was stated, would nom-inate a representative for the purpose of continu-ing the discussions.

On 28 September 1951, the Committee in-formed the Union Government of its regret thatthat Government had been unable to accept theCommittee's counter-proposal. The Committee,while ready and willing to consult further withthe Union Government on the counter-proposal,could not accept the suggestion that it reconsiderits previous decision that the Union Government'sproposal was not within its terms of reference.

In its report (A/1901) to the General Assem-bly, the Ad Hoc Committee also stated that ithad been unable to comply wth instructions to ex-amine any reports on the administration of SouthWest Africa, since no such reports had been fur-nished. The Committee stated that it had exam-ined a communication sent to the Secretary-General by the Reverend Michael Scott, Consultantand Observer of the International League for theRights of Man, enclosing a photostatic copy of aletter from two senior chiefs of the Herero tribein South West Africa. In this letter the chiefshad expressed appreciation for the ReverendScott's efforts as their spokesman and asked thatthe United Nations send an investigating com-mission to South West Africa.

A communication from the British Section ofthe Women's International League for Peace andFreedom had also been examined by the Commit-tee. This organization had expressed its concernat the failure by South Africa to accept the As-

sembly's recommendations and the Court's advis-ory opinion, and had stated that it was a matterof urgency that South Africa be constrained tohonour its obligations as a United Nations Mem-ber State. The Committee decided to accept boththese communications as petitions, to include themin its report to the Assembly, and also to trans-mit them to the Union Government for comment.

Following the release of its report (A/1901)to the General Assembly, the Ad Hoc Committeeheld three additional meetings; on 8, 15 and 18November 1951. At these meetings it examinedcommunications addressed to its Chairman fromthe following organizations: the Saint Saviour'sChurch in Maspeth, New York; the Oxford CityLiberal Association in Oxford, England; the For-eign Policy Association of Baton Rouge in Lou-isiana; the United Kingdom Council of the Ra-cial Unity Movement in London; the CentralOffices of the Religious Society of Friends in Lon-don; the Kvindernes Internationale Liga For FredOg Frihed in Copenhagen; the Anti-Slavery So-ciety in London; and the Fellowship of Recon-ciliation (Canadian Section) in Toronto. Theseorganizations expressed their concern over thefailure of the Union of South Africa to accepteither the Assembly's recommendations or theCourt's opinion. The United Nations was askedto extend its protection to the peoples of SouthWest Africa, and to make effective the principleof United Nations supervision over their welfare.The Committee decided to accept the communi-cations as petitions and to transmit them to theUnion of South Africa for comment. The petitionswere included as addenda (A/1901/Add.1-3)to the Committee's report (A/1901) to the As-sembly.

2. Consideration by the FouthCommittee

The question of South West Africa was con-sidered at the sixth session of the General Assem-bly at the 201st to 204th, 219th, 221st to 225th,228th, 242nd, 244th and 246th to 248th meetingsof the Fourth Committee, from 14 November1951-15 January 1952.

Two aspects of the question were dealt withby the Fourth Committee: (1) requests for hear-ings from representatives of the population ofSouth West Africa, and (2) the report of the AdHoc Committee on South West Africa.


a. CONSIDERATION OF REQUESTS FOR HEAR-INGS FROM REPRESENTATIVES OF THE POP-ULATION OF SOUTH WEST AFRICA

At its 201st and 202nd meetings on 14 and 15November, the Fourth Committee discussed theorder in which it should take up the agenda itemsallocated to it. The representative of the Unionof South Africa proposed orally that the Com-mittee should take up the question of South WestAfrica as the second item on its agenda, whichwould enable the Union Government to be repre-sented by Mr. Donges, who was Minister of theInterior in the South African Government and theman best qualified to submit the South Africancase. Mr. Donges, it was pointed out, would haveto return home for sittings of the South AfricanParliament which would overlap those of the Gen-eral Assembly.

In answer to the Cuban representative, theChairman of the Committee stated that a request(A/C.4/187) had been made, through the Rev-erend Michael Scott, for representatives of theHerero tribe of South West Africa to be givenan opportunity to state their views before theCommittee. The representative of Cuba thereuponintroduced an amendment (A/C.4/L.134/Rev.1)to the South African proposal to have the Com-mittee consider the question of South West Africaas soon as the spokesmen of the petitioning tribesof the Territory were able to be present at itsmeetings. He stated that as the machinery for thetransmission of petitions had been interrupted bythe Union Government, with the result that peti-tions were not received through the AdministeringPower, it was necessary that the United Nationsshould take action to safeguard the right of peti-tion; his amendment was intended to accomplishthat purpose, he said.

The Cuban amendment was withdrawn in fav-our of a joint amendment (A/C.4/L.135), byCuba, Egypt, Guatemala, India, Indonesia, Iran,Liberia and the Philippines, proposing:

(1) that the application for a hearing from theHerero tribe be considered as a previous question, tobe taken up before the first item of the agenda; and(2) that the question of South West Africa and thatof information from Non-Self-Governing Territories beplaced as the second and third items on the final agenda.

The sponsors of the joint amendment accepteda proposal by Pakistan that its first paragraph bemodified to provide that applications for hearingspresented up to the present date, including thatfrom the Herero tribe, be considered as a previ-ous question to be taken up before the first itemon the agenda. (The Chairman had stated that

two petitions had been received from the Ewepeople asking that their representatives be givena hearing.)

At the Committee's 202nd meeting on 15 No-vember, the first paragraph of the joint amend-ment, as modified, was adopted by a roll-call voteof 39 to 1, with 13 abstentions; the second para-graph by 29 votes to 6, with 15 abstentions; andthe amendment as a whole by 36 votes to 1, with15 abstentions.

At its 203rd and 204th meetings on 16 Novem-ber, the Fourth Committee discussed the questionof requests for hearings from representatives ofthe population of South West Africa. A jointdraft resolution (A/C.4/L.136) was submitted byBrazil, Cuba, Ecuador, Egypt, Guatemala, India,Indonesia, Pakistan and the Philippines, propos-ing that the Committee should grant the requestsof the petitioners from South West Africa andexpressing the wish that the Union of SouthAfrica facilitate the prompt travel of the repre-sentatives from South West Africa to Paris forthis purpose during the current Assembly session.

Iraq submitted an amendment (A/C.4/L.137)to the joint draft resolution which would expressthe hope that the French Government would fa-cilitate the granting of the necessary visas to therepresentatives of the indigenous tribes. Followinga statement by the representative of France that,in accordance with the agreement concluded be-tween the United Nations and the French Gov-ernment relating to the sixth session of the Gen-eral Assembly, the French Government wouldmake no difficulties about issuing the necessaryvisas to any person invited to participate in thework of the Assembly, the representative of Iraqwithdrew his amendment.

Besides the sponsors of the joint draft, the rep-resentatives of the following countries spoke insupport of it: Burma, Costa Rica, the DominicanRepublic, Haiti, Liberia, Mexico, Nicaragua, Swe-den, Syria, Uruguay, Venezuela, Yemen and Yu-goslavia. Those representatives regarded it asfundamental that any people should have theright to express its point of view to the UnitedNations on any matter which was of vital interestto it and which the United Nations was consider-ing. In the particular case of South West Africa,it was essential to hear the peoples of the Terri-tory before voting on a resolution which wasbound to have a very far-reaching effect, fortunateor otherwise, on their future. In the present in-stance, they argued, the Union of South Africahad failed to report to the United Nations on its


Administration of South West Africa; hence, itwas highly desirable for the Fourth Committee totry to get the relevant information in some otherway. Although the Herero, Nama and Berg Dam-ara tribes were only a small part of the population,the exercise of the right of petition was not con-fined to the population as a whole; it could beexercised by any group, and even by an individual.

With respect to the argument that the right ofpetition could be exercised only in accordancewith the procedure followed by the League of Na-tions, it was stated that there was a differencebetween petitions, the purpose of which was toexpress grievances, and requests for hearings. Itseemed logical first to give the petitioners a hear-ing so as to ascertain whether their purpose wasto express grievances or merely to communicateto the General Assembly certain information re-lating to their Territory. If it appeared that thepetitioners desired to place certain grievances be-fore the United Nations, it would naturally befor the General Assembly to request the Union ofSouth Africa to make its observations. If, on theother hand, it was only a matter of communicatinginformation, the consent of the Mandatory Powerwould in no way be required. Moreover, even inthe case of petitions concerning grievances, all theMandatory Power could do was to make its ob-servations on them; it could not prevent theirtransmission to the United Nations. It had beenobserved that up to the present no petitions fromSouth West Africa had been transmitted by theUnion of South Africa to the United Nations.The United Nations, these representatives said,must see to it that nothing impeded the exerciseof the right of petition which the peoples of theTerritory were admitted to possess. This, they felt,would be permissible under the text of the Court'sopinion, which required adherence to the Mandateprocedure only "as far as possible".

The representatives of Australia, Belgium,France, the Netherlands, Norway, the Union ofSouth Africa and the United Kingdom opposedthe joint draft. They considered that the provi-sions of the Charter on the examination of peti-tions by the United Nations applied only toTrust Territories, and South West Africa was notin that category. It was true that the Court hadstated in its advisory opinion that the peoples ofSouth West Africa retained the right of petitionwhich they had enjoyed under the former Mandate,and that the United Nations was legally qualifiedto deal with petitions from the Territory. But theCourt had added that the United Nations should

conform, as far as possible, to the procedure fol-lowed under the former Mandates System. Thatprocedure laid down that petitions must be trans-mitted to the League of Nations by the MandatoryPower itself and it made no provision for oralpetitions. Moreover, the procedure to be followedfor petitions from the Territory was a matter tobe dealt with in the conversations initiated be-tween the Ad Hoc Committee on South WestAfrica and the Government of the Union of SouthAfrica.

The Fourth Committee, they argued, should notprejudge any decision which might be taken in thematter, which it would do if it invited the peti-tioners forthwith to state their views. The tribesrequesting hearings, it was stated, constituted onlya small proportion of the total indigenous popula-tion of South West Africa; they numbered lessthan 86,000 out of a total of 340,000 indigenousinhabitants. The Fourth Committee, in the opinionof those representatives, should confine itself totaking note of the requests for hearings submittedby the petitioners and state that, as the appropriateprocedure had not yet been laid down, it wasunable to grant them. Such a course would, theyconsidered, contribute to a solution of the problem.

The representative of the Union of South Africaadded that the adoption of the joint draft wouldreveal a serious lack of respect towards his Gov-ernment. The Mandate, he said, had provided thatSouth West Africa could be administered as anintegral part of the territory of the Union of SouthAfrica. What would happen, he asked, if a partof the population of a Member State which hada grievance were authorized to appeal directly tothe United Nations? Would not the result be asituation intolerable to the State concerned? And,in the case of South West Africa, would not sucha decision by the United Nations be likely tomake the settlement of the matter still more diffi-cult? No nation, great or small, he emphasized,could allow its rights or dignity to be attacked.The grievances of some of the tribes requestinghearings, he said, went back several decades, andthe Union of South Africa had never attempted toconceal those grievances from the United Nations.

The representative of Denmark stated that, inthe hope that the Union Government mighteventually accept a solution based on the proposalsof the Ad Hoc Committee on South West Africa,his delegation would abstain from voting on thejoint draft. The representative of the United Statesdeclared that, largely for the reasons put forwardby the Danish representative and partly because


the United States was a member of the Ad HocCommittee on South West Africa which had al-ready expressed its views on the question, hisdelegation would likewise abstain from voting.

The joint draft resolution was adopted at the204th meeting of the Fourth Committee on 16November by a roll-call vote of 37 votes to 7,with 7 abstentions. The vote was as follows:

In favour: Afghanistan, Argentina, Bolivia, Brazil,Burma, Byelorussian SSR, Chile, Colombia, Costa Rica,Cuba, Czechoslovakia, Dominican Republic, Ecuador,Egypt, Ethiopia, Greece, Guatemala, Haiti, India, Indo-nesia, Iran, Iraq, Lebanon, Liberia, Mexico, Nicaragua,Pakistan, Philippines, Poland, Saudi Arabia, Sweden,Syria, Ukrainian SSR, USSR, Uruguay, Venezuela,Yugoslavia.

Against: Australia, Belgium, France, Netherlands, NewZealand, Union of South Africa, United Kingdom.

Abstaining: Canada, China, Denmark, Israel, Norway,Peru, United States.

The resolution as adopted (A/C.4/190) readas follows:

"The Fourth Committee,"Having before it the requests of Hosea Kutako,

Nikanor Hoveka, Theophilus R. K. Katjiuongua andDavid Witbooi representing the Herero, Nama andDamara tribes (A/C.4/187), for a hearing before theFourth Committee in connexion with its considerationof the question of South West Africa,

"Decides to grant the request of these chiefs andheadmen and/or other spokesmen designated by them toappear before the Committee when this item is takenup in order that the Committee may enjoy the fullestinformation on this question, and

"Expresses the wish that the Government of the Unionof South Africa will facilitate the prompt travel of HoseaKutako, Nikanor Hoveka, Theophilus R. K. Katjiuonguaand David Witbooi, and/or such other spokesmen asmay be designated by them, from South West Africa toParis for this purpose during the present session".

( 1 ) Withdrawal of the Delegation of South Africafront Participation in the Work of the Fourth

Committee

At its 219th meeting on 5 December 1951, theFourth Committee discussed an exchange of lettersbetween the President of the General Assemblyand the Chairman of the delegation of the Unionof South Africa which had been transmitted tothe Chairman of the Fourth Committee by thePresident and circulated to the Committee (A/-C.4/196).

In his letter, the Chairman of the delegation ofthe Union of South Africa stated that the resolu-tion concerning the question of requests for hear-ings from representatives of the population ofSouth West Africa had been adopted by theFourth Committee in spite of the strong protesta-tions of the South African delegation that the

Committee, in adopting it, would be acting im-properly. He restated the reasons governing hisdelegation's attitude (see above) and declaredthat his Government had no option but to refuseto take cognisance of the resolution. While theUnion Government, he emphasized, was fully pre-pared to discuss the report of the Ad Hoc Com-mittee on South West Africa in the same spiritof frankness and cordiality as had characterizedthe negotiations with that Committee, it could seeno point in continuing discussions in the FourthCommittee which had, by its action, forfeited allconfidence in its ability to deal with the report ofthe Ad Hoc Committee impartially and objectively.The Union Government had accordingly beenreluctantly compelled to instruct its delegation towithdraw from further participation in the workof the Fourth Committee, pending review of theconstitutionality of the resolution in question bythe General Assembly. The President of the As-sembly was asked to take the necessary steps toarrange that the Fourth Committee's resolution bereviewed by the Assembly.

In his reply, the President of the General Assem-bly stated that, after a careful examination of theChairman's request, he found no valid basis forfollowing the proposed course of action. ThePresident noted that the decision of the FourthCommittee to grant a hearing was not taken withthe purpose of considering a petition but in orderthat the Committee might enjoy the fullest inform-ation on the question of South West Africa. Henoted further that, following the adoption of theresolution by the Committee, no request was madeby any Member State to refer this resolution tothe General Assembly and in particular no suchrequest was made by the representative of theUnion of South Africa, nor was any challengeentered after the vote was taken or motion madefor reconsideration on constitutional grounds. Inthose circumstances, the President of the Assemblydeclared, he had no alternative but to refer theletter to the Chairman of the Fourth Committeefor such action as he and the Committee mightdeem appropriate.

The representatives of Cuba, Haiti, Iraq, Liberia,Uruguay, Venezuela, Yemen and Yugoslavia,among others, expressed either regret or criticismof the attitude of South Africa, which, it wasstated, would be harmful to the work of theUnited Nations, as it removed any possibility ofco-operation in the Fourth Committee and pre-vented the Committee from finding an agreedsolution to the problem of South West Africa.


The representative of Yemen declared that theUnited Nations, far from allowing itself to beintimidated, must show that it intended to pro-tect the oppressed even if, in so doing, it annoyedthe delegation of a powerful country.

The representative of Sweden said that it wasnot the fate of a petition that the Fourth Com-mittee had defended, but rather its own right toreceive all pertinent information when it con-sidered a particular question. He hoped that theSouth African delegation would resume its placein the Committee and that, in the spirit of theCharter, it would co-operate in the solution ofthe problem, both for its own sake and for thatof South West Africa.

Several representatives, including those of Cuba,Guatemala, Haiti, Iraq, Lebanon, Pakistan, Vene-zuela and Yemen, expressed disapproval of theterms used in the letter addressed by the Chairmanof the South African delegation to the Presidentof the Assembly.

( 2 ) Invitation to Hear the Reverend Michael Scott

The representative of Lebanon, at the 219thmeeting of the Fourth Committee on 5 December,orally proposed that, when it took up the item ofSouth West Africa, the Committee hear the Rev-erend Michael Scott. The representative of Brazilorally introduced an amendment to this proposalto add the following phrase to the Lebanese text:"and pending the arrival in Paris of the spokesmenmentioned in the previous resolution of the Com-mittee on the matter". She stated that by adoptingthat form of words, the Fourth Committee wouldemphasize that it was not its intention to departfrom its previous decision and that it wished tohear the spokesmen of the tribes.

The Committee adopted the proposal, as amend-ed, by a roll-call vote of 41 to none, with 11abstentions. The vote was as follows:

In favour: Afghanistan, Argentina, Bolivia, Brazil,Burma, Byelorussian SSR, Chile, China, Colombia, Cuba,Czechoslovakia, Dominican Republic, Ecuador, Egypt,El Salvador, Ethiopia, Greece, Guatemala, Haiti, India,Indonesia, Iran, Iraq, Lebanon, Liberia, Mexico, Nica-ragua, Pakistan, Peru, Philippines, Poland, Saudi Arabia,Sweden, Syria, Thailand, Ukrainian SSR, USSR, Uru-guay, Venezuela, Yemen, Yugoslavia.

Abstaining: Australia, Belgium, Canada, Denmark,France, Israel, Netherlands, New Zealand, Norway,United Kingdom, United States.

At its 221st meeting on 7 December, the repre-sentative of Iraq orally proposed that the Com-mittee take up the question of South West Africaat its next (222nd) meeting and continue withit until finished, but that the item should remain

on the agenda to enable the Committee to hearthe chiefs of the Herero tribe if and when theyarrived in Paris. The representative of Cuba orallysuggested the addition to this proposal of thewords "and to deal, if necessary, with any othermatter relating to the question under discussion".This amendment was accepted by the representa-tive of Iraq. The proposal, as amended, was adopt-ed by 32 votes to 6, with 2 abstentions.

( 3 ) Statements by the Reverend Michael Scott

The Reverend Michael Scott addressed theFourth Committee at its 222nd meeting on 8December 1951. He thanked the Committee forinviting representatives of the Herero, Nama andBerg Damara tribes of South West Africa, andexpressed regret that it had not yet been foundpossible for those African chiefs to appear beforethe Committee. He stated that it would be out ofplace for him to attempt to say anything whichmight be regarded as a substitute for the voices ofthe Africans speaking from their own experienceand the intimate knowledge of the hopes and fearsof their peoples which had moved them to go onpresenting their appeal to the United Nations forfive successive years.

One of the great obstacles to confidence andmutual understanding between the races in SouthWest Africa, he said, was the denial to them intheir own country of the right to speak for them-selves through their own direct representatives inthe councils of state. They had to be representedalways by one of the race whom they had come toregard as their oppressor. However sincere anddevoted the white politicians who advocated theircause might be, there seemed to be no valid reasonwhy a whole people should be debarred fromspeaking for themselves because they belonged toa particular race.

What was sought, he stated, was not an occasionfor venting petty grievances and complaintsagainst any particular government or administra-tion, but, in fact, an opportunity to tell the storyof the whole impact of white civilization uponthat part of Africa, from the latter part of thenineteenth century, before the German conquestand the massacre of the Herero, Nama and BergDamara tribes, until the present day. The lifestory of some of the old chiefs who wanted to beheard by the Fourth Committee was the wholehistory of their people and should be told in theCommittee before they died. They provided thecontinuity from an age that was passing to a newage that was beginning to dawn for Africa, withnew hopes and new desires.


He spoke of the growth, during the last century,of the concept of trusteeship and internationalaccountability. It was, he maintained, as much inthe interests and for the good of the white in-habitants as of any others that a confidence ininternational justice and the processes of law andorderly development in Africa should be main-tained. He gave examples of the difficulties thevarious chiefs were encountering in attempting toreach Paris in order to tell their story to theCommittee.

He recalled that the request for a United Na-tions commission to visit South West Africa tohear the opinion of all sections of the populationhad been made many times. The people of theTerritory were still asking that a commission visittheir Territory in order to ascertain the true factsof the condition of the life of the people.

He said that he had purposely refrained fromdealing with any of the important questions ofsubstance before the Fourth Committee, becausehe felt they were questions on which the peoplethemselves were alone really qualified to speak.He therefore hoped that it would be possible forthe Committee to postpone any final decisionabout the future status and administration of SouthWest Africa or coming to any conclusion in itsnegotiations until the inhabitants themselves couldbe heard, or until he could make a further sub-mission on the matters of substance referred to,or present appropriate documentary evidence onthose subjects.

At the 244th meeting on 12 January 1952, theReverend Michael Scott said that it was severalyears since the chiefs of the tribes of South WestAfrica had first asked him to represent their casebefore the United Nations, failing an opportunityto attend themselves. At the current session of theGeneral Assembly, the Fourth Committee hadinvited those chiefs to appear before it; evenbefore that invitation had been received, theyhad applied to come to the United Nations. Onreceipt of the invitation, the chiefs had left theirreserves and journeyed to Windhoek, where fortwo months they had been awaiting permission toleave for Paris. During those two months manycables had been sent to him and to the Secretariatsaying that the chiefs were still awaiting traveldocuments and permission to travel. In view ofthe difficulties of communication, he felt that theUnited Nations was no longer completely in-formed on the facts of the matter before it. Itshould therefore re-examine or empower the AdHoc Committee on South West Africa to examine

the many documents that had been submitted toand published in the records of the second andfourth sessions of the General Assembly, togetherwith the statements of the South West Africanchiefs which he had himself submitted to theFourth Committee in 1949. Among other things,the Ad Hoc Committee should send a representa-tive to South West Africa to verify the situationin the Territory.

The representative of Iraq said that it had beenobvious from the opening of the question that therepresentatives of the Herero tribe would not beable to attend the meetings of the Fourth Com-mittee. The Committee, however, should not giveup its struggle to secure the presence of thoserepresentatives. The General Assembly should betold at the close of the session how much theCommittee regretted its inability to hear them.He therefore submitted a draft resolution (A/-C.4/L.201) to the effect that the statement of theReverend Michael Scott should be sent to theAd Hoc Committee on South West Africa forwhatever use the latter might wish to make of it,and that the rapporteur should be directed toexpress in the Committee's report to the GeneralAssembly its regret at not having been able tohear the Herero chiefs.

Representatives of Brazil, Cuba, Ecuador, Guate-mala, Haiti, India, Indonesia, Liberia, Norway,Pakistan and Uruguay either associated themselveswith a tribute to the Reverend Michael Scott bythe representative of Iraq or supported his draftresolution or did both. They considered that thequestion of South West Africa and its destinywas the direct responsibility of the United Nationsand must be shouldered as such.

The draft resolution by Iraq was adopted by aroll-call vote of 40 to none, with 9 abstentions.

The Reverend Michael Scott, at the 247th meet-ing of the Fourth Committee on 15 January, saidthat he had been notified by the Union of SouthAfrica in a letter dated Pretoria, 19 December1951, that he was regarded as an undesirable in-habitant and would not be allowed to re-enter thecountry, no reasons being given for that decision.He assumed that the decision was due to his pastactivities and to his association with movementsagainst racialism, Nazism and imperialism.

He appealed to the Fourth Committee to trans-mit its report to the representatives of the Herero,Nama and Berg Damara tribes, together with anindication of the trend of the discussion since theinvitation had been sent to them. He could notgive them an account of the Committee's work


himself since he was prevented from re-enteringthe country, and the representatives of the tribescould have no information themselves as they hadnot been allowed to travel to Paris.

The resolution the Fourth Committee hadadopted on the question, he pointed out, referredonly to the Herero chiefs, whereas the invitationhad also mentioned the representatives of theNama and Berg Damara tribes. Since that omis-sion might be misunderstood, he wondered if itcould be rectified.

The indigenous inhabitants of South WestAfrica, he explained, were still confined to reserva-tions and could not move freely from one reserva-tion to another. The creation of the United Na-tions had given them new hope, but the doctrineof white racial supremacy was again being pro-claimed, to an increasing degree, in the Union ofSouth Africa.

South West Africa, he remarked, needed theconstructive help of the United Nations in itsbattle against ignorance, poverty, disease andcrime. In the Union of South Africa itself, theorganizations of African Indians and of colouredpeople had decided on a policy of passive resis-tance to the application of a number of raciallydiscriminatory laws if they were not repealed inthe near future. In that country, the United Na-tions was being challenged to establish its jurisdic-tion and should bring the message of the Charterand of the civilization it represented.

At the same meeting, the representative of Ecua-dor said that, as had been pointed out, the FourthCommittee had in fact adopted a resolution at its244th meeting in which no reference was madeto the Nama and Berg Damara tribes. That mis-take should be rectified and, accordingly, he pro-posed that the Fourth Committee should reconsiderits previous resolution. The Committee, by a roll-call vote of 42 to none, with 7 abstentions,adopted this proposal.

The representative of Ecuador orally proposedthat the Committee amend its previous resolutionby: (1) modifying the first paragraph to takeaccount of Mr. Scott's statement, and (2) insertingin the second paragraph after the word "Herero"the words "Nama and Berg Damara." He alsointroduced an amendment (A/C.4/212) to adda third paragraph to the resolution (see below).

The Fourth Committee at its 248th meeting on17 January adopted by a roll-call vote of 34 to 1,with 9 abstentions the amendment to add a thirdparagraph. Paragraphs 1 and 2 of the resolution,as amended, were adopted by 36 votes to 1, with

7 abstentions. The resolution as a whole, as amend-ed, was adopted by 34 votes to 1, with 9 absten-tions. The resolution as adopted (A/2066, p. 12)read:

"The Fourth Committee"Decides that the statements made at the 244th and

247th meetings of the Committee by the ReverendMichael Scott, who has merited from the Fourth Com-mittee its admiration and gratitude, be sent to the AdHoc Committee on South West Africa for whatever useit may wish to make of them;

"Directs its Rapporteur to express in the report to theGeneral Assembly the regrets of the Committee for nothaving been able to hear the Herero, Nama and BergDamara chiefs;

"Requests the Secretary-General to transmit to theHerero, Nama and Berg Damara Tribes through theirsenior chiefs, or through the representatives of the latter,the official documentation of the sixth session of theGeneral Assembly of the United Nations concerning thequestion of South West Africa."

b. CONSIDERATION OF THE REPORT OF THEAd Hoc COMMITTEE

The Fourth Committee considered the report(A/1901 and Add. 1 to 3) of the Ad Hoc Com-mittee on South West Africa at its 222nd to224th meetings, held on 8, 10 and 11 December1951. The Committee had before it two jointdraft resolutions on the subject. The first (A/C.4/-L.156), which, in general, dealt with the recon-stitution of an Ad Hoc Committee on South WestAfrica to re-examine the matter and continuenegotiations with the Union of South Africa (fortext, see resolution adopted, below), was submittedby Cuba, Denmark, Ecuador, Egypt, Iraq, thePhilippines, Thailand and the United States. Thesecond (A/C.4/L.157), which, in general, wouldhave the General Assembly reassert its positionthat the normal way of modifying the interna-tional status of the Territory of South West Africawould be to place it under the International Trus-teeship System by means of a Trusteeship Agree-ment (for text, see resolution adopted, below),was submitted by Cuba, Ecuador, Egypt, India andthe Philippines.

The representative of Cuba, who was a sponsorof both draft resolutions, stated that the two werenot incompatible. The first was an attempt tomake a realistic proposal within the limits estab-lished by the advisory opinion of the Court, ac-cording to which the Union of South Africa wasnot obliged to place South West Africa under theInternational Trusteeship System but remainedbound by the League of Nations Mandates System.Therefore, a system as similar as possible to the


Mandates System should be set up under theUnited Nations. The draft resolution, he said, didnothing more than recognize that future work andnegotiations must be within the limits of theCourt's advisory opinion; its provisions were rea-listic and practical.

The adoption of the draft resolution did not,however, hinder the General Assembly from re-asserting its position that the normal way ofmodifying the international status of South WestAfrica would be to place it under the InternationalTrusteeship System. It was still possible to hopethat in the near future the Union of South Africamight agree to co-operate with the United Nationsand draw up a Trusteeship Agreement. The secondjoint draft resolution he declared, expressed thepolicy and ideal of the United Nations and out-lined a course of action which would be effectivein the long run. Moreover, it exercised the onlykind of pressure to which a government couldyield with dignity—the moral pressure exercisedby the whole international community.

( 1 ) Joint Eight-Power Draft Resolution

The sponsors of the joint eight-Power draftresolution (A/C.4/L.156), Cuba, Denmark, Ecua-dor, Egypt, Iraq, the Philippines, Thailand andthe United States, considered it to be the culmina-tion of the Fourth Committee's sincere effortsthroughout the years to find a just and practicablesolution to the question of South West Africa.They regretted that the efforts of the Ad Hoc Com-mittee to have the Union of South Africa agreeon procedures for implementing the Court's opin-ion had failed. All that the Fourth Committeecould do, they said, was to support the Court'sopinion and hope that the Union of South Africawould give effect to it. It was essential to maintainthe rule of law and reason in international affairs.A just solution in respect of South West Africawould bring greater peace and harmony not onlyto Africa but also to the world as a whole. Theyfelt that a solemn appeal should be made to theUnion of South Africa to reconsider its positionand to resume negotiations on the basis of theproposals of the Ad Hoc Committee on SouthWest Africa. In their view, the submission ofreports and the transmission of petitions by theUnion of South Africa was a sine qua non for asettlement of the problem; if the Union Govern-ment could accede to that, an agreement could bereached. They went on to state that, slight as thehope for agreement seemed, it should not beendangered by too drastic action. The joint draft

resolution was expressed in firm but moderateterms and represented an attempt to secure a justand equitable solution based on the Court's advi-sory opinion.

Besides its sponsors this draft resolution (A/-C.4/L.156) was supported either whole-heartedlyor with certain reservations by the followingcountries, among others: Burma, Chile, China,Ethiopia, France, India, Indonesia, Lebanon,Liberia, Nicaragua, the Netherlands, Norway,Pakistan, Sweden, Syria, Uruguay and Venezuela.

Representatives of those countries, mostly, consi-dered that the measures proposed in the joint eight-Power draft were the most judicious that theUnited Nations could adopt at that stage to settlethe question of South West Africa. They wereperfectly compatible with the purposes of theUnited Nations set forth in the Charter.

No real solution of the question, they felt,could be achieved without the co-operation of theUnion of South Africa, and the Union should begiven another opportunity to take account ofworld opinion.

While supporting the joint eight-Power draft,the representative of Liberia stated that its adop-tion would mean that the United Nations wouldactually beg the Union of South Africa to dis-charge its moral obligations. The representativeof Burma, while supporting the joint draft, con-sidered it doubtful whether any further attemptat negotiations could succeed.

The representative of Uruguay, also supportingthe joint draft, stated that he could not agree withits first paragraph, because he did not feel thatinternational peace was threatened by the questionof South West Africa.

The representatives of Indonesia and Pakistanconsidered the joint draft to be too moderate inits provisions.

The representative of El Salvador, though sup-porting the joint draft, suggested limiting to sixmonths the time available to the proposed Ad HocCommittee for executing its task, so as to intro-duce a note of urgency into the resolution andindicate the importance which the United Na-tions attached to the matter. The representativeof Thailand, speaking as the Chairman of the AdHoc Committee on South West Africa, later ex-plained that the wording of the joint eight-Powerdraft would have that effect, for the report of theproposed Ad Hoc Committee was to be submit-ted to the seventh session of the General Assem-bly, and the Committee would hardly be able tobegin its work before March 1952.


The representatives of the Byelorussian SSR,Czechoslovakia, Poland, the Ukrainian SSR andthe USSR opposed the joint eight-Power draftresolution (A/C.4/L156). These representa-tives recalled that, at previous sessions, the Gen-eral Assembly had adopted several resolutionscalling upon the Union of South Africa to placethe Territory of South West Africa under theInternational Trusteeship System. The Union Gov-ernment had not only refused to act on thoserecommendations, but in 1949 it had also declaredthat it would no longer transmit information re-lating to the Territory. Furthermore, in that yearit had passed the South West Africa AffairsAmendment Act, making the Territory a mereprovince of the Union of South Africa. Thus, itwas stated, the Union of South Africa refused tofulfil its obligations towards a Mandated Terri-tory. That policy was contrary to the letter andspirit of the Charter and was also illegal. Theopinion of the Court was to the effect that theUnion Government was in no way entitled toannex the Territory. Those representatives statedthat they were unable to support the joint eight-Power draft because it provided that South WestAfrica should continue under the Mandates Sys-tem; they considered that the Territory should beplaced under the International Trusteeship Sys-tem. Furthermore, the joint draft provided for thereconstitution of the Ad Hoc Committee on SouthWest Africa. They had been opposed to the es-tablishment of the Committee as they felt that itcould serve no useful purpose; the Committee'sreport, in their opinion, showed that that viewhad been well founded.

The representative of Guatemala stated that hehad intended to vote against the joint draft on theground that the procedure contemplated wouldmerely protract matters for another year and wouldbe a waste of time, since it was clear that theUnion of South Africa had no intention of ne-gotiating. But since it was proposed to delete oneof the operative paragraphs (which dealt with theAssembly endorsement, as a minimum, of the pro-posal of the Ad Hoc Committee with respect toSouth West Africa), he would abstain in the vote.The representatives of Australia, the United King-dom and Yugoslavia also announced their inten-tion of abstaining in the vote.

The representative of Australia welcomed theintention of the Fourth Committee to continuepatient negotiation to reach agreement with theUnion of South Africa. Nevertheless, he felt acertain disappointment that the area for negotia-

tion had been circumscribed—unnecesarily, in hisopinion—by clauses in the draft resolution. More-over, some parts of the text dealing with atti-tudes rather than substance appeared to him toprejudice the prospects of successful negotiation.

While approving the appeal to the Union ofSouth Africa and adherence to the advisory opin-ion of the Court, the representative of the UnitedKingdom thought that the joint draft was notin such terms as would be likely to achieve thedesired result, since certain paragraphs containedcriticisms of the attitude of one of the parties tothe negotiations.

The representative of Yugoslavia objected inprinciple to the text of the joint draft, which heconsidered a retrograde step in view of the de-cisions already taken at previous sessions. How-ever, since many representatives considered it tobe a new effort to achieve a solution, he wouldabstain rather then vote against it.

The representative of Belgium stated that hewould not participate in the vote. Belgium con-sidered that the Union of South Africa was notlegally obliged to place South West Africa underthe International Trusteeship System. Two factorsconcerning that Territory were especially signifi-cant. First, the Territory lay within the same landfrontiers as the Union of South Africa—a pert-inent consideration since the Fourth Committeehad always placed great weight on attachment ofthe dependent people to the Metropolitan coun-try. Secondly, the Union of South Africa hadmade express reservations, at the San FranciscoConference and subsequently, regarding the plac-ing of the Territory under the International Trus-teeship System. While regretting that the Unionof South Africa refused to accept the proposal ofthe Ad Hoc Committee as a basis for discussion,he considered that the Union Government wasnot bound to accept the thesis that the UnitedNations was the legitimate successor to the Leagueof Nations.

At the 224th meeting of the Fourth Commit-tee on 11 December, the sponsors of the jointeight-Power draft accepted an oral proposal bythe Dominican Republic to change the order ofthe paragraphs in the preamble and to delete thesecond operative paragraph, by which the GeneralAssembly would have endorsed in principle, as aminimum, the proposal of the Ad Hoc Commit-tee. Adoption of that paragraph by the Assembly,it was pointed out, would imply approval of theproposal of the Ad Hoc Committee, which hadnot been considered by the Fourth Committee.


The Committee decided, by 19 votes to 12, with21 abstentions, to delete the words "on the basisof the Ad Hoc Committee's proposal"; it replacedthem by the words "with the Ad Hoc Commit-tee" (see below, paragraph 4 of resolution asadopted). After adopting the draft resolution, asamended, in parts, in votes ranging from 48 tonone, with 4 abstentions, to 41 to 5, with 6 ab-stentions, the Committee adopted the draft reso-lution as a whole by a roll-call vote of 39 to 5,with 8 abstentions.

At its 24th meeting on 11 January 1952, theFourth Committee decided that the Ad Hoc Com-mittee on South West Africa should be composedof Norway, Syria, Thailand, the United States andUruguay.

(2) Joint Five-Power Draft Resolution

The representative of the Philippines, one ofthe sponsors (Cuba, Ecuador, Egypt, India andthe Philippines) of the joint five-Power draft res-olution (A/C.4/L.157), stated that the Union ofSouth Africa had only two courses open to it:to negotiate with the Ad Hoc Committee on SouthWest Africa on the procedure for the examina-tion of reports and petitions if it wished to main-tain the Mandate; or to conclude a TrusteeshipAgreement with the United Nations if it wantedto change the terms of its administration. Thefirst alternative, he said, was provided for in thejoint eight-Power draft resolution (A/C.4/L.156),the second, in the joint five-Power draft.

Besides the sponsors of the joint five-Powerdraft the representative of the following States,among others, supported it: Brazil, Burma, theByelorussian SSR, Czechoslovakia, Indonesia, Leb-anon, Poland, Syria, the Ukrainian SSR, the USSR,Venezuela and Yugoslavia. Those representativesfelt that adoption of this resolution would be inthe best interests of the peoples of South WestAfrica and the prestige of the United Nations.

The representatives of Brazil and Colombia,while in favour of the joint draft, were opposedto the provision concerning the InternationalCourt. They felt that the Court's decision thatChapter XII of the Charter did not impose on theUnion of South Africa a legal obligation to placeSouth West Africa under the International Trus-teeship System should not be emphasized, as ithad been reached by such a small majority (8 to6) in the Court.

The representative of Sweden and the UnitedKingdom opposed the joint five-Power draft. Theydid not consider it would be possible to negotiate

an agreement on the basis that South West Af-rica should be placed under the Trusteeship Sys-tem and expressed the view that adoption of thejoint draft could only hinder negotiations betweenthe Ad Hoc Committee on South West Africa andthe Union Government.

The representatives of Australia, China, theDominican Republic, France, Greece and theUnited States said that they would abstain in thevote of the joint draft.

The representatives of China, the DominicanRepublic and the United States saw no point inrecapitulating General Assembly resolution 449(V). The representatives of the Dominican Re-public, France and the United States said that theUnion of South Africa had no legal obligation toplace South West Africa under the InternationalTrusteeship System.

The representatives of Australia and Greecethought that to adopt the joint five-Power draftresolution would prejudice the effect of the jointeight-Power draft.

The Fourth Committee, at its 224th meetingon 11 December 1951, adopted the joint five-Power draft resolution in parts, in votes rangingfrom 45 to none, with 4 abstentions, to 24 to10, with 14 abstentions. The joint draft resolution,as a whole, was adopted by 33 votes to none,with 17 abstentions.

3. Consideration by the GeneralAssembly in Plenary Session

The General Assembly considered the two res-olutions proposed by the Fourth Committee (A/-2066 and Corr.1) at its 361st and 362nd plenarymeetings on 18 and 19 January 1952.

The representative of the Union of South Af-rica declared that the action taken in the FourthCommittee required the most careful and urgentattention of the General Assembly. The discus-sions which had taken place in New York be-tween the representatives of the Union Govern-ment and the Ad Hoc Committee on South WestAfrica, he said, had been conducted in an atmos-phere which was heartening and which auguredwell for the future. But it soon became clear, andit was in fact declared by the Ad Hoc Committee,that proposals which had been introduced as abasis of discussion by the South African repre-sentatives could not be considered by the Ad HocCommittee on the grounds that they did not fallwithin the Committee's terms of reference. It wasimpossible to proceed on this point and it became


clear to all concerned that the only way out ofthe impasse was to report the progress which hadbeen, achieved to the Fourth Committee in thehope that the Ad Hoc Committee's terms of ref-erence could be broadened in order to permit offurther discussion. But it was impossible, he stated,for the Union Government to participate in theFourth Committee, when this matter was underconsideration. He gave the following, amongother, reasons.

Despite strenuous objections from the UnionGovernment, the Fourth Committee had firstadopted a draft resolution to permit oral petitionsfrom certain Herero chiefs, and had subsequentlyacted upon it. In addition a Mr. Michael Scott,who had not asked to be heard, was invited at alater stage to address the Committee on, appar-ently, the alleged complaints of the tribes he pur-ported to represent.

The Fourth Committee must have known thatsuch actions would be resented by South Africa,not only because of their unconstitutionality butalso because they could only be regarded as astudied insult to South Africa and as an attempt,successful as it later proved, to prejudice the mainsubject under discussion. His Government viewedthis unwarranted and undeserved slight in themost serious light and placed its complaint beforethe General Assembly in plenary meeting in theconfident expectation that a satisfactory way outof the impasse would be found. For the past fiveyears, with almost monotonous regularity, SouthAfrica had had to endure these outrageous insultsfrom countries whose energies could have beenfar better employed in "sweeping before theirown doors".

Th Fourth Committee had also reopened a de-bate at the request of an individual who was nota member of the Committee and had allowed himto suggest amendments to a resolution alreadyadopted. It had also permitted a discussion ofSouth Africa's own internal policies in direct con-flict with Article 2, paragraph 7, of the Charter.

The representative of South Africa stated thatthe resolution adopted by the Fourth Committeeon 16 November 1951, in terms of which theCommittee decided to hear oral petitions fromcertain Herero chiefs, was irregular and unconsti-tutional. The constitutional arguments advancedin support of South Africa's contention, had notbeen met or refuted. The resolution of 5 Decem-ber 1951, in terms of which the Fourth Commit-tee decided to give a hearing to Mr. Scott, carriedthe irregularity still further. That resolution, he

argued, was adopted in order to give an individualthe opportunity of appearing before the FourthCommittee, not as the representative or the spokes-man of a section of the indigenous populationof South West Africa, but in his individual ca-pacity. It was a resolution so far-reaching in itsconsequences and implications, and so contrary tothe provisions of the Charter, that it should notbe allowed to remain on record to be invoked asa precedent at some future time. The Fourth Com-mittee thus had not only allowed an individual,whose qualifications and authority to speak were,to say the least, doubtful, to address it, but hadalso allowed him to discuss matters having noconnexion with South West Africa and, indeed,matters which fell clearly within the domesticjurisdiction of South Africa. Such unconstitutionalactions, the representative of South Africa stated,were but a symptom of a tendency to disregardcertain fundamental principles of the Charter.

He placed on record his Government's formalcomplaint against the Fourth Committee, charg-ing it with acting beyond its legal competence inacceding to the request for oral petitions fromrepresentatives of a section of the population ofa country which was not a Trust Territory, andinviting, even without a request, an individualnot representing any section of that population toaddress it. He stated that he based his charges onthe following facts:

"A. That the Charter of the United Nations makesno provision for the right of petition to the UnitedNations except in the case of Trust Territories;

"B. That South West Africa is not a Trust Terri-tory;

"C. That the procedure of the Council of theLeague of Nations in respect of mandated territoriesprecluded the hearing of oral petitions;

"D. That the General Assembly in accepting theAdvisory Opinion of the International Court of Justiceon South West Africa subscribed to the Court's opinionthat in regard to South West Africa the procedure ofthe Council of the League of Nations under the MandatesSystem should as far as possible be followed;

"E. That the General Assembly appointed an ActHoc Committee on South West Africa to examine peti-tions and other matters relating to South West Africaas far as possible in accordance with the procedure underthe former Mandates System;

"F. That certain communications were received bythe Secretary-General and were considered and treatedas petitions by the said Ad Hoc Committee, and trans-mitted as petitions to the Government of the Union ofSouth Africa for its observations in accordance with theprocedure followed under the former Mandates System;

"G. That, in spite of these facts, the Fourth Com-mittee at its 204th meeting decided to accept oral peti-tions from Hosea Kutako and other Chiefs or Headmen


of the Herero, Nama and Damara tribes, or spokesmendesignated by them, at its 219th meeting it called upona certain individual to address it during the considerationof the item on the agenda relating to South West Africa,and at its 222nd, 244th and 247th meetings heard thesaid individual;

"H. That the communications (A/C.4/187) onwhich the Fourth Committee purported to act at its204th meeting emanated from the same source, were ofthe same nature and in one case was the identicalcommunication which was treated as a petition by theAd Hoc Committee."

The representative of South Africa stated thatbecause the Fourth Committee had acted uncon-stitutionally, unwisely and improperly, in adoptingresolutions calculated to hamper further negotia-tions, to prejudice discussion of the actual itembefore it and to wound South Africa unnecessar-ily and unjustly, his delegation would not takepart in any vote on the draft resolutions submit-ted by the Committee on this item.

The representatives of Brazil, India, Iraq andUruguay spoke in support of the action taken bythe Fourth Committee. The representative of Bra-zil stated that the Union Government had appar-ently objected to hearing the Herero representa-tives because it thought this would result in noth-ing but complaints against it. Brazil, from the be-ginning of the work of the United Nations, hadmaintained its belief in the right of oral andwritten petitions as a means of bringing beforethe world conscience, represented by the UnitedNations, claims and causes which the Organiza-tion would otherwise be unable to consider andwhich, before the existence of the United Nations,were smothered by the interests or by the mis-understanding of a few.

The representative of Iraq did not consider il-legal the invitation to hear the Herero chiefs. Theprinciple of asking anyone to speak before a bodyof the United Nations had always been asserted.He recalled previous occasions when representa-tives of groups had been heard by organs of theUnited Nations, as well as the previous occasionswhen the Reverend Michael Scott had been heardby the Fourth Committee.

The representative of India stated it was withinthe scope of the Court's opinion for the Assemblyto listen to oral petitions when written petitionsfailed to bring out the full facts. The whole ques-tion of South West Africa had been exhaustivelydiscussed in the Fourth Committee and it wasonly regrettable that South Africa had taken itsstand on a narrow legal interpretation and hadnot made any positive or constructive contribu-tion in the Committee toward the solution of this

complex problem. The General Assembly had pre-viously used great restraint in the wording of itsresolutions because of the general desire not tocreate difficulties for the Union Government, butthe Union Government should consider its graveresponsibility.

The representative of Uruguay saw the questionas a struggle between a Member States that re-fused to fulfil its obligations as administrator ofa Territory entrusted to it under Mandate, and thegreat majority of the General Assembly whichwished to enforce respect for international under-takings and defend weak peoples and human rights.

The representative of Cuba, in supporting thedraft resolutions, stated that anything relating tothe former Mandates System actually came underthe direct jurisdiction of the international com-munity. Furthermore, in voting for both resolu-tions, Cuba was supporting the defence of theprinciples of the Universal Declaration of HumanRights and, more particularly, of the passages inthe declaration which condemned racial discrimi-nation.

The representative of the Netherlands statedthat the draft could serve no useful purpose, andmight even be harmful to the conduct of theforthcoming negotiations.

The representatives of France and the Nether-lands declared that they would vote in favour ofthe first draft resolution and would abstain inthe vote on the second. They supported the firstdraft resolution since it appealed for further ne-gotiations. The representative of France, however,emphasized that the United Nations could hearpetitions only from Trust Territories; to trans-gress such a principle would be to imperil thevery basis of co-operation in the United Nations.His delegation, he said, had reservations with re-gard to the drafting of certain paragraphs of thefirst draft resolution and to certain implicit criti-cisms which it considered regrettable.

With reference to the second draft resolution,the representatives of France and the Netherlandsreminded the General Assembly that, even if thenormal way of changing the status of South WestAfrica would be to place it under Trusteeship,the Court in its advisory opinion had ruled thatthe Union of South Africa had no legal obliga-tion under the Charter to place South West Africaunder the International Trusteeship System, asappeared to be implied by that draft resolution.

The representatives of Australia, Belgium, NewZealand and the United Kingdom explaining theirabstentions on the two draft resolutions stated that


neither of them was likely to produce the desiredresult. The first draft resolution, they argued, onthe one hand criticized and condemned the Unionof South Africa for the attitude which it adopted,while on the other hand it appealed solemnly toit to resume negotiations with the reconstitutedAd Hoc Committee on South West Africa. Theyfelt that the Assembly could more likely persuadethe Union Government to do what the majoritywished if the critical part of the draft resolutionwere toned down or omitted altogether. As re-gards the second draft resolution, it was theirbelief that since the Assembly had already statedthat, in its opinion, the Union Government shouldplace South West Africa under the InternationalTrusteeship System, there was no advantage inrepeating this opinion when it was known that,at present, the Union Government was not pre-pared to do this, and further the Court had statedthat it was entirely within its legal rights in sorefusing.

Those representatives agreed with the repre-sentative of the Union of South Africa that theaction of the Fourth Committee in inviting therepresentatives of the South West Africa tribesto give evidence was unconstitutional (1) becausethe Charter itself only permitted petitions fromTrust Territories, and South West Africa was nota Trust Territory; and (2) because the Court,while it found that South West Africa was aTerritory still under Mandate and that a right topetition existed under that Mandate, also statedthat the right to petition must be exercised ac-cording to the formal League of Nations pro-cedure for Mandated Territories, and this proced-ure would not normally have permitted the hear-ing of the Hereros and of the Reverend MichaelScott in the manner decided upon by the FourthCommittee.

At the Assembly's 362nd plenary meeting on19 January 1952, the first draft resolution wasadopted by a roll-call vote of 45 to 5, with 8 ab-stentions, as follows:

In favour: Afghanistan, Argentina, Bolivia, Brazil,Burma, Canada, Chile, China, Colombia, Costa Rica,Cuba, Denmark, Dominican Republic, Ecuador, Egypt,El Salvador, Ethiopia, France, Greece, Haiti, Honduras,India, Indonesia, Iran, Iraq, Israel, Lebanon, Liberia,Mexico, Netherlands, Nicaragua, Norway, Pakistan,Paraguay, Peru, Philippines, Saudi Arabia, Sweden, Syria,Thailand, United States, Uruguay, Venezuela, Yemen,Yugoslavia.

Against: Byelorussian SSR, Czechoslovakia, Poland,Ukrainian SSR, USSR.

Abstaining: Australia, Belgium, Guatemala, Iceland,Luxembourg, New Zealand, Turkey, United Kingdom.

At the same meeting, sub-paragraph (b) ofthe second draft resolution was adopted by 36votes to 7, with 14 abstentions, and the draftresolution as a whole was adopted by a roll-callvote of 36 to none, with 22 abstentions, as fol-lows:

In favour: Afghanistan, Argentina, Bolivia, Brazil,Burma, Byelorussian SSR, Colombia, Cuba, Czecho-slovakia, Dominican Republic, Ecuador, Egypt, El Salva-dor, Ethiopia, Guatemala, Haiti, Honduras, India, Indo-nesia, Iran, Iraq, Lebanon, Liberia, Mexico, Pakistan,Philippines, Poland, Saudi Arabia, Syria, Thailand,Ukrainian SSR, USSR, Uruguay, Venezuela, YemenYugoslavia.

Abstaining: Australia, Belgium, Canada, Chile, China,Costa Rica, Denmark, France, Greece, Iceland, Israel,Luxembourg, Netherlands, New Zealand, Nicaragua,Norway, Paraguay, Peru, Sweden, Turkey, United King-dom, United States.

The resolution adopted (570 A and B (VI))read:

"The General Assembly,"Believing that an agreed solution of the question of

South West Africa would not only bring greater peaceand harmony to the Continent of Africa, but wouldcontribute significantly to the relieving of tensions inwider areas of the world,

"Considering that the acceptance of the advisoryopinion of the International Court of Justice of 11 July1950 is essential to the rule of law and reason ininternational affairs, thus, strengthening the cause of theUnited Nations,

"Having by resolution 449 A (V) of 13 December1950 accepted the advisory opinion of the InternationalCourt of Justice with respect to South West Africa,

"Recalling that the advisory opinion of the Interna-tional Court of Justice with respect to the Territory ofSouth West Africa sets forth, inter alia, that:

"(a) The Territory of South West Africa is a Terri-tory under the international Mandate assumed by theUnion of South Africa on 17 December 1920,

"(b) The Union of South Africa acting alone hasnot the competence to modify the international statusof the Territory of South West Africa, and that thecompetence to determine and modify the internationalstatus of the Territory rests with the Union of SouthAfrica acting with the consent of the United Nations,

"(c) The Union of South Africa continues to havethe international obligations stated in Article 22 of theCovenant of the League of Nations and in the Mandatefor South West Africa as well as the obligation totransmit petitions from the inhabitants of that Territory,the supervisory functions to be exercised by the UnitedNations to which the annual reports and the petitionsare to be submitted,

"Having established an ad hoc committee of five,consisting of the representatives of Denmark, Syria,Thailand, the United States of America and Uruguay, toconfer with the Union of South Africa concerning theprocedural measures necessary for implementing theadvisory opinion of the International Court of Justice,

A


"Having authorized this committee, as an interimmeasure, to examine the report on the administrationof the Territory of South West Africa covering theperiod since the last report, as well as petitions and anyother matters relating to the Territory that may betransmitted to the Secretary-General,

"Having received the report of the Ad Hoc Committeeon South West Africa,

"Noting that the Union of South Africa submitted tothe Ad Hoc Committee on South West Africa a pro-posal which the Ad Hoc Committee found unacceptablebecause it did not allow for an adequate implementationof the advisory opinion of the International Court ofJustice and because the proposal made no provision forthe supervision of the administration of the Territory ofSouth West Africa by the United Nations,

"Noting that the Ad Hoc Committee submitted to theUnion of South Africa a counter-proposal based on theexisting Mandates agreement and providing for a pro-cedure for the supervision of the administration of theTerritory of South West Africa by the United Nationsas nearly as possible analogous to that which existedunder the League of Nations and, to the extent prac-ticable, involving international obligations no moreextensive or onerous than those existing under theLeague of Nations,

"Noting that the Government of the Union of SouthAfrica, in reply to the Ad Hoc Committee's counter-proposal, had stated that it was willing to resume nego-tiations only on the basis of its own proposal, and hadinformed the Committee that the Union of South Africawas unable to accept the principle of submission ofreports on the administration of the Territory,

"Noting with concern that the Ad Hoc Committee wasunable to comply with the resolution of the GeneralAssembly authorizing it to examine the report on theadministration of the Territory of South West Africabecause no report was received, and that no petitionswere transmitted by the Union of South Africa,

"1. Commends the Ad Hoc Committee on SouthWest Africa for its earnest and constructive efforts tofind a reasonable basis of agreement;

"2. Regrets the fact that, in the course of the nego-tiations with the Ad Hoc Committee, the Union ofSouth Africa, while prepared to negotiate on the basisof certain articles of the Mandate, indicated its un-willingness to give adequate expression to its inter-national obligations with respect to South West Africa,and in particular with regard to the supervisory respon-sibility of the United Nations toward this Territory;

"3. Declares that, since the Government of the Unionof South Africa cannot avoid its international obliga-tions by unilateral action, the United Nations cannotrecognize as valid any measures taken unilaterally bythe Union of South Africa which would modify theinternational status of the Territory of South WestAfrica;

"4. Appeals solemnly to the Government of SouthAfrica to reconsider its position, and urges it to resume

negotiations with the Ad Hoc Committee for the pur-pose of concluding an agreement providing for the fullimplementation of the advisory opinion of the Inter-national Court of Justice; and urges it further to sub-mit reports on the administration of the Territory ofSouth West Africa and to transmit to the UnitedNations petitions from communities or sections of thepopulation of the Territory;

"5. Reconstitutes until the next regular session ofthe General Assembly the Ad Hoc Committee on SouthWest Africa, consisting of the representatives of Nor-way, Syria, Thailand, the United States of Americaand Uruguay, and requests it to continue to confer withthe Government of the Union of South Africa con-cerning means of implementing the advisory opinionof the International Court of Justice;

"6. Authorizes the Ad Hoc Committee on SouthWest Africa, as an interim measure, and pending thecompletion of the negotiations with the Government ofthe Union of South Africa, and as far as possible inaccordance with the procedure of the former MandatesSystem, to examine reports on the administration ofthe Territory of South West Africa as well as petitionsand any other matters relating to the Territory thatmay be transmitted to the Secretary-General;

"7. Requests the Ad Hoc Committee to submit areport on its activities to the General Assembly at itsnext regular session."

B

"The General Assembly,"Having by its resolution 449 B (V) of 13 December

1950 reiterated its resolutions 65(I) of 14 December1946, 141(II) of 1 November 1947, 227(III) of 26November 1948 and 337(IV) of 6 December 1949 tothe effect that the Territory of South West Africa beplaced under the International Trusteeship System,

"Having accepted the advisory opinion of 11 July1950 of the International Court of Justice concerningSouth West Africa, which states, inter alia, that:

"(a) The provisions of Chapter XII of the Charterare applicable to the Territory of South West Africain the sense that they provide a means by which theTerritory may be brought under the Trusteeship System,

"(b) The provisions of Chapter XII of the Charterdo not impose on the Union of South Africa a legalobligation to place the Territory under the TrusteeshipSystem,

"(c) The Union of South Africa acting alone hasnot the competence to modify the international statusof the Territory of South West Africa, and that thecompetence to determine and modify the internationalstatus of the Territory rests with the Union of SouthAfrica acting with the consent of the United Nations,

"Reasserts its position, expressed in resolution 449 B(V) of 13 December 1950, that the normal way ofmodifying the international status of the Territorywould be to place it under the International TrusteeshipSystem by means of a trusteeship agreement in accord-ance with the provisions of Chapter XII of the Charter."


C. CONDITIONS IN TRUST TERRITORIES IN THE PACIFIC

During its eighth session, held from 30 Janu-ary-16 March 1951, the Trusteeship Council ex-amined annual reports submitted by the Admin-istering Authorities on the administration duringthe year 1949-50 of each of the four Trust Ter-ritories in the Pacific: Nauru, New Guinea, West-ern Samoa and the Trust Territory of the PacificIslands.19

The Council also examined six petitions con-cerning Nauru, three concerning New Guinea, oneconcerning Western Samoa, and seven concerningthe Trust Territory of the Pacific Islands.20

In examining the annual reports and petitions,the Council took into consideration the reportsconcerning these Territories of the Visiting Mis-sion sent to the four Territories in 1950 (T/789-792,21 and the observations submitted by NewZealand (T/825) on the Mission's report onWestern Samoa.

On 15 March 1951, the Council adopted, by10 votes to none, with 1 abstention, a resolution(302(VIII)) expressing its appreciation of thework accomplished by the Mission on its behalf.It decided that it would continue to take the Mis-sion's observations and conclusions into accountwhen it examined matters relating to the TrustTerritories concerned. At the same time, the Coun-cil invited the respective Administering Authori-ties to consider carefully the conclusions of theMission as well as the comments thereon made bythe Council. By resolution 303(VIII), adopted on16 March, the Council decided that the Mission'sreports, together with the observations submittedby New Zealand and the action taken by theCouncil, should be printed.

A brief description of the conditions in eachof the Trust Territories in the Pacific is given be-low, together with summaries of the observationsof the Visiting Mission and of the conclusionsand recommendations of the Council in connexionwith its examination of the annual reports andof petitions of a general nature.

1. Nauru, Administered by Australia onBehalf of Australia, New Zealand

and the United Kingdom

Nauru is an isolated island with a total area of5,263 acres, 4,116 of which contain the phosphatedeposits which give the island its importance. Asof 30 June 1950, according to the Administering

Authority's annual report,22 Nauru had a popu-lation of 3,432, including 1,582 Nauruans, 1,491Chinese, 278 Europeans, and 81 Gilbertese.

a. POLITICAL DEVELOPMENT

Full powers of legislation, administration andjurisdiction are vested in an Administrator, whois required to conform to such instructions as hemay receive from the Government of Australia,and ordinances made by him are subject to dis-allowance by that Government. The Administratoris advised on Nauruan affairs by the Council ofChiefs, consisting of fourteen chiefs elected forlife. The Administering Authority reported thatlegislation to reconstitute this Council into anelected body with additional powers, both admin-istrative and financial, was still in draft form,pending final examination by the present Councilof Chiefs.

The Visiting Mission sent to the Territory in1950 was in favour of granting increased respon-sibility to the Council of Chiefs. While it recog-nized that there might be some objection to anexclusively Nauruan body adopting legislation af-fecting the Chinese and European communities,which constitute more than half the populationof the island, the Mission suggested that consid-eration be given to granting the Council legisla-tive power, subject to suitable safeguards, inpurely Nauruan matters. The Mission also com-mented on the relationship between the Admin-istration and the British Phosphate Commissioners,who have exclusive control over the phosphate in-dustry in Nauru and Ocean Island, a neighbour-ing dependency not under the Trusteeship Sys-tem. The Mission considered that under the pro-visions of the Agreement of 2 July 1919, be-tween Australia, New Zealand and the UnitedKingdom, legislative and administrative arrange-

19 See chart on the Examination of Annual Reports,pp. 766-67.

20 For list of petitions examined during 1951, seetable, pp. 791-98.

21 See Y.U.N., 1950, p. 768.22 Commonwealth of Australia, Report to the General

Assembly of the United Nations on the Administrationof the Territory of Nauru from 1st July, 1949 to 30thJune, 1950 (1950). For detailed discussions of thisreport in the Trusteeship Council, see summary recordsof the eighth session of the Council (30 January-16March); summaries of the observations of individualmembers are included in the Council's report to the Gen-eral Assembly (A/1856). For general discussion in theAssembly concerning conditions in Trust Territories, seepp. 768-72.


merits affecting the working of the phosphate in-dustry were not within the "full powers of theAdministrator" but were subject to the determina-tion or agreement of the Commissioners. More-over, the British Phosphate Commissioners occu-pied so commanding a position in the economyof the island that their administrative indepen-dence was virtually complete, and the position ofthe Administrator in his relations with them ap-peared to be a difficult one. For this reason, itseemed to the Mission highly desirable that therepresentative of the Administering Authority onthe island should be a person possessed of consid-erable administrative experience.

During its eighth session, the Trusteeship Coun-cil was informed by the Administering Authoritythat the British Phosphate Commissioners func-tioned in an administrative capacity only withinthe compass of their industrial activity and or-ganization, and in the role of employers of la-bour. Although the advice of the Commissioners,as the advice of the Council of Chiefs, was soughton any administrative or policy matters, it wasstated, the Administration exercised complete ad-ministrative and legislative functions for the Ter-ritory, and pursued the policy of watching theinterests and safeguarding the welfare of the in-digenous and immigrant communities. With re-spect to the Council of Chiefs, the AdministeringAuthority explained that the present Council hadagreed that the new body should, at the presentstage, remain advisory on legislative matters. Itwould, however, take an executive and controllingposition with respect to the peace and good orderof the Nauruan people and would have directcontrol over a fund for its own and domesticNauruan matters. It was anticipated that the firstelections to the new Council would be held in1951; voting would be by secret ballot and adultsuffrage, as in the past.

The Trusteeship Council, recalling its previousrecommendations on this subject, welcomed theproposed reconstitution of the Council of Chiefsas a first step towards the acquisition of actuallegislative power, and recommended that the Ad-ministration consider, in consultation with theNauruan people, progressively increasing theCouncil's powers and responsibilities. The Admin-istering Authority was also asked to ensure thatthe dominant economic position of the phosphateindustry should not adversely affect the interestsof the indigenous population in general.

The administrative staff of the Territory, ac-cording to the Administering Authority's report,

is organized in six departments and, on 30 June1950, consisted of 316 employees — twelve per-sons of European origin, 24 Chinese and 280Nauruans or Gilbertese. Five of the departmentswere headed by Europeans and one by the Nau-ruan Head Chief, recently appointed as NativeAffairs Officer. The detailed work of administra-tion in all departments, the Administering Au-thority pointed out, was in the hands of Nauruans.

The attendance of two Nauruan delegates atthe First South Pacific Conference, held at Suva,in the Fiji Islands, during April-May 1950, wascited by the Administering Authority as an im-portant event in the history of the Nauruan peo-ple.

In a petition (T/Pet.9/6) received by the Visi-ting Mission, the Council of Chiefs expressed dis-satisfaction with the rate of progress in educatingNauruans to occupy key positions. The Missionagreed that the problem was closely linked withthe question of education, and suggested that em-ployees of the Administration who showed prom-ise in Nauru should receive scholarships to Aus-tralia or elsewhere, with a view to acquiring qual-ifications for higher positions. Subsequently, theTrusteeship Council, in addition to its other rec-ommendations concerning education (see below),recommended the establishment of a more fullyorganized programme to train Nauruans forhigher administrative positions.

b. ECONOMIC DEVELOPMENT

The economy of Nauru is almost entirely de-pendent on the phosphate industry. The rehabili-tation of the industry was completed during 1949-50, according to the Administering Authority'sreport, and it is now operating at a rate of amillion tons a year, slightly higher than the pre-war rate. It is estimated that the phosphate de-

are virtually no other natural resources. Productionof copra was revived early in 1950 after a lapseof many years, the Administering Authority re-ported, 6.55 tons having been exported by 30June 1950.

The Trusteeship Council had previously ex-pressed concern with the economic developmentof the Territory and the fate of the Nauruansafter the phosphate deposits are exhausted. TheVisiting Mission also commented on the Terri-tory's meagre economic resources apart from itsphosphate deposits. Referring to a request (T/-Pet. 9/6) by the Council of Chiefs for the estab-lishment of research centres to explore the pos-

posits will be exhausted in about 70 years. There


sibilities of agriculture, animal husbandry, andcommercial fishing, the Mission expressed approvalof any effort in this direction. However, the Ad-ministrator referred to the poor quality of thesoil and the periodic droughts, and informed theMission that not much could be achieved by wayof the establishment of subsidiary industries. TheMission gathered that resettlement of the Nau-ruans on some other island or in another terri-tory might offer the only satisfactory long-termsolution, unless research revealed some possiblealternative source of livelihood. The AdministeringAuthority stated in its report that this was thesubject of continued study and also of discussionswith the Council of Chiefs. Subsequently, it ex-plained that research was being carried out todetermine the possibility of producing kapok andcoir fibre, and that new types of coconuts andpineapple suckers were being introduced for ex-perimental planting. Nevertheless, it stated, therewere serious obstacles to the development of agri-culture.

Noting the steps already taken, the TrusteeshipCouncil recommended that the Administering Au-thority continue to survey the economic possibili-ties of the Territory with a view to placing on amore secure basis the future of its inhabitants.By resolution 324(VIII) of 15 March 1951, theTrusteeship Council drew the attention of theCouncil of Chiefs to the fact that the isolation ofNauru from world markets, together with its lim-ited natural resources, was a serious obstacle tothe establishment of an economic industry otherthan phosphate mining.

In its report for 1949-50, as before, the Ad-ministering Authority supplied figures on the ton-nage and value of phosphate shipped from Nauru,all of which goes to Australia and New Zealand.According to the report, 1,009,266 tons of phos-phate, valued at £1,589,594,23 were exported fromNauru during 1949-50, as against 680,746 tons,valued at £1,174,287, the year before. The annualreport also gave the reports and accounts of theBritish Phosphate Commissioners covering OceanIsland and Nauru jointly. Separate informationconcerning the operations of the Commissionerswith respect to Nauru and the actual prices re-ceived for Nauruan phosphates as compared withworld prices, which had been considered necessaryby the Council for its appraisal of economic con-ditions in the Territory, was again not made avail-able. The Visiting Mission reported that it hadtried, by means of a questionnaire addressed to theGeneral Manager for the British Phosphate Com-

missioners, to obtain data concerning the financesof the phosphate industry, in particular, costs ofphosphates landed in Australia and New Zealandfrom various sources. It was informed, however,that it was unlikely that the Commissioners wouldsupply the phosphate costs requested. Importsfrom sources other than Nauru and Ocean Islandhad ceased, except from Christmas Island, whichwas now controlled by Australia and New Zea-land. The Commissioners' view, the Mission ob-served, was that payments to Nauruans should begoverned by present and future needs, and not byany fluctuations in the price of phosphate, forwhich there was no world standard, mainly onaccount of geographical considerations. The Trus-teeship Council noted that the report for 1949-50 was prepared only a short time after its previ-ous recommendation, and reiterated that it re-mained handicapped in its appraisal of economicconditions because of the absence of informationwhich would show, in particular, the separatefinancial operations of the British Phosphate Com-missioners with respect to Nauru, and the actualprices received for phosphate as compared withworld market prices.

The Administering Authority reported that, oneach ton of phosphate exported, the PhosphateCommissioners were required to pay royalties of1s. 6d. to or on account of the Administration(6d. to meet ordinary administration expenses;

6d. to repay a £200,000 rehabilitation advancemade by the Commissioners; and 6d. to repay anadvance for Nauruan housing) and 1s. 1d. to oron account of the Nauruans (6d. to the owner ofthe land; 2d. to a long-term trust fund for thebenefit of landowners; 3d. to the Nauru RoyaltyTrust Fund created exclusively for the benefit ofthe Nauruans; and 2d. to the Nauruan Commun-ity Long-Term Investment Fund). In addition,the Commissioners pay each year a sum of £12,-000 in commutation of payments due with respectto customs duties and other charges of the Ad-ministration. This, together with the royalties pay-able, totalled £142,364 during 1949-50. Actualpayments of royalties to Nauruans or to the vari-ous trust funds amounted to £44,045, as comparedwith £20,909 in 1948-49. One effect of this in-crease in payments was to raise the number ofNauruan depositors in the Savings Bank by 91and the amount of net deposits by Nauruans by£6,949. This was noted with satisfaction by theTrusteeship Council as a reflection of the im-

23 Figures in this chapter are in Australian currency.£A125=£ Sterling 100=$US 280.


proved economic condition of the inhabitants re-sulting from the increased royalty payments.

The Visiting Mission, while in Nauru, wasasked by the Council of Chiefs (T/Pet. 9/6) tonegotiate, on behalf of the Nauruan community,with the British Phosphate Commissioners for anincrease in the royalties payable, and in particularin the amount invested for the benefit of thecommunity at long-term. This investment fund,they considered, would not be very considerablewhen the prospective increase in population wasborne in mind; they estimated that it would pro-vide each Nauruan with only one or two hundredpounds to re-establish himself after the phosphatedeposits were exhausted. While it did not think itappropriate to act as negotiator, the Mission dis-cussed the matter with Australian officials andthe Commissioners. It was informed that it hadalready been decided to increase the royalty pay-able into the Nauruan Community Long-Term In-vestment Fund to 5d. a ton, effective 1 July 1950.The Mission stated that, because of lack of infor-mation, it was not in a position to form a usefulopinion on the appropriateness of the current scaleof phosphate royalties but it welcomed this in-crease, which appeared to satisfy the request ofthe Nauruan community. It also pointed out thatthe royalties being used to repay the rehabilita-tion advance and the advance for Nauruan hous-ing would achieve their purpose in some fifteenyears, and it was probable that, at that time, roy-alty payments into the Long-Term InvestmentFund could be increased considerably. The in-crease in royalty was noted with approval by theTrusteeship Council, which requested the Admin-istering Authority to consider further increasingthe royalties for the benefits of the inhabitants.This recommendation was drawn to the attentionof the Council of Chiefs in the Trusteeship Coun-cil's resolution (324(VIII) ) on their petition.

Territorial revenue during 1949-50 totalled£59,103, of which £54,443 was paid directly bythe British Phosphate Commissioners (£25,443royalty, £12,000 commuted payment, and £17,000the balance of the rehabilitation advance). Ex-penditure amounted to £68,568, of which £13,-859 was spent directly for the benefit of Nauruans.The expenditure for Nauruan education and anumber of other social activities is financed fromthe Nauru Royalty Trust Fund; expenditures fromthis fund amounted to £6,365. The only directtaxation applicable in the Territory is a capitationtax on adult males, at the rate of 15s. per annumfor Nauruans (paid into the Royalty Trust Fund),

20s. for Chinese and 40s. for Europeans. Perma-nent employees of the Administration are exemptand the Phosphate Commissioners pay the tax fortheir employees.

The Visiting Mission noted that the reconstruc-tion advance was already exhausted. It observedthat, even after the reconstruction period, it wouldseem unlikely that the ordinary revenue would besufficient at current rates to cover ordinary expen-diture and expressed the opinion that it would beeasier to collect an additional royalty on phosphatethan to impose an income tax, as had earlier beensuggested by the Trusteeship Council. The Ad-ministering Authority informed the TrusteeshipCouncil, during its eighth session, of a decision toincrease the rehabilitation advance by £100,000,to be financed by increasing the royalty from 6d.to 9d. a ton, effective 1 July 1950; at the sametime, the royalty for ordinary administrative pur-poses had been increased from 6d. to 1s. a ton,estimated to be sufficient to cover the increasedcosts of administration. The Council was also in-formed that the question of abolishing the capita-tion tax was being investigated.

Most of the land area of Nauru is owned pri-vately by members of the indigenous population,according to the Administering Authority's re-port. The British Phosphate Commissioners havethe right to lease any phosphate-bearing land onthe island and to mine and export the phosphate.For the leased land, they are required to pay thelandowners, in addition to royalties, a lump sumat the rate of £45 per acre. Non-phosphate landmay be leased by the Phosphate Commissioners,with the approval of the Administrator, at anannual rent of £3 an acre. As of 30 June 1950,154 acres of non-phosphate land and 1,125 acresof phosphate-bearing land were held under lease.In the opinion of the Administering Authority,phosphate-bearing land, once worked, was com-plete wasteland which would be impossible to re-claim. The Trusteeship Council nevertheless con-sidered it advisable that technical studies shouldbe made to determine the possibility of makinguse of worked-out phosphate land, and asked tobe informed of the result of such studies.

The Council examined two petitions receivedby the Visiting Mission relating to land use. Inthe first (T/Pet. 9/4), the people of Aiwo com-plained of overcrowding, stating that almost twothirds of their district was taken up by the Phos-phate Commissioners and at a lower rental thanthat paid during the German annexation period.They also suffered from the phosphate dust result-


ing from the operation of the phosphate installa-tions, most of which are situated in their district,and objected to the dumping of rubbish on pri-vate blocks. The Mission stated that there was nodoubt that the people of this district had sufferedconsiderable inconvenience, but it was unable toput forward any particular solution and suggestedthat the Administering Authority should recon-sider the matter.

In its observations (T/852) on this petition,the Administering Authority stated that the dustannoyance had been substantially diminished andthat all accumulations of rubbish had been clearedfrom private blocks. The purchase of land, whichaccounted for the higher rate paid by the Ger-mans, it stated, was no longer permitted. Further-more, no land could be leased without the ap-proval of the Administration, which was respon-sible for protecting the interests of indigenouslandowners; land in the Aiwo district, it added,had actually been refused the Commissioners inview of the attitude of the Nauruan owners. Not-ing this, the Trusteeship Council, by resolution322(VIII) of 15 March 1951, invited the Ad-ministering Authority to continue to control alien-ation and leasing of land in the Aiwo district inthe interests of the indigenous inhabitants; it de-cided that no action on its part was called for onthe petitioners' other complaints, which appearedto have been satisfied.

In the second petition (T/Pet. 9/7), the peopleof the adjacent districts of Yarren and Boe statedthat the Australian Government had been using,and intended to acquire permanently, an airstripbuilt by the Japanese on some of their best land;they had been led to understand, they added, thatthe Government's action was in response to thewishes of the United Nations. The petitionerssought United Nations assistance for the return oftheir land and suggested the construction ofanother airstrip on worked-out phosphate land.This was not considered practicable by either theMission or the Administering Authority, however.The Mission was of the opinion that an airstrip,though rarely used, was essential, and suggestedthat urgent measures be taken to reach a settle-ment, which should include adequate compensa-tion and payment of back rental. The Administer-ing Authority stated (T/852) that the questionof compensation and of the precise area requiredhad been the subject of negotiations between theAdministrator and the Council of Chiefs andthat proposals for back rental had been placedbefore the latter in December 1950. In a. resolu-

tion (325(VIII) ) on the petition, the Councilreiterated the Visiting Mission's assurances to thepetitioners that the United Nations had in no waybeen concerned with the decision of the Aus-tralian Government to acquire the airstrip per-manently. The Council considered, however, thatit was more in the interest of the population ofNauru as a whole to retain the existing airstripthan to return the land to the petitioners, pro-vided that just compensation was made. It rec-ommended that, when a settlement had beenagreed upon, the Administering Authority imple-ment it without delay and report on the matterto the Council.

The Nauru Co-operative Society, operated byNauruans under the direction of the Council ofChiefs, engages in general trading and conducts,among other things, a piggery, poultry farm andbakery. The Council of Chiefs claimed (T/Pet.9/6) that its store was in an unfavourable com-petitive position compared with the trading storerun by the Phosphate Commissioners, who controlall shipping facilities. It asked for help in solvingsuch problems as irregularity of delivery and pricefluctuations during transit. The Visiting Missioncommented that these were problems facing anytrading concern, and that it did not believe theBritish Phosphate Commissioners' store was runin a spirit of destructive competition. Nevertheless,it expressed the view that the Nauru Co-operativestore was an enterprise worthy of every encourage-ment from the Administration and the PhosphateCommissioners. In particular, it suggested that thelatter should place their more extensive buyingfacilities in Australia at the disposal of the NauruCo-operative Society and give it every possiblehelp in the matter of shipping. The AdministeringAuthority explained (T/852) that the purchasingorganization of the British Phosphate Commis-sioners was available to the Co-operative Societybut that the Council of Chiefs preferred to operatethrough a commercial buying agent in Australia.This statement was called to the attention of theCouncil of Chiefs in the Trusteeship Council'sresolution on their petition (324(VIII) ).

c. SOCIAL DEVELOPMENT

The Nauruan community, while still in somerespects organized along traditional lines, hasmodified its way of life as a result of the effectsof the phosphate industry, and most able-bodiedNauruan men work either for the Administrationor the British Phosphate Commissioners. During1949-50, the Administering Authority reported,


the annual basic wage for Nauruan employees ofthe Administration was raised by £7 to £73 anda further increase, of £27 a year, became effectiveon 1 July 1950. The basic wage for Nauruan la-bourers employed by the Phosphate Commissionersis 8d. an hour. Nauruan employees also receive7s. 6d. a month for each dependent. They worka 44-hour week (clerical and shift workers ofthe Administration work fewer hours) and areallowed fourteen days' leave a year, as well asten public holidays.

The Chinese are recruited in Hong Kong un-der one-year contracts and are provided with foodand quarters while in Nauru. They are not per-mitted to bring their families with them and arerepatriated when their contracts terminate unlessthey are re-engaged. The wages of the 1,468Chinese employees of the British Phosphate Com-missioners during 1949-50 ranged from £6 10s.for unskilled labourers to £14 a month for trades-men and mechanics. They work a 44-hour weekand are allowed six Chinese holidays a year.

The European community consists of Admin-istration officials, officials and technicians em-ployed by the British Phosphate Commissioners,their families, and a few missionaries. Europeansreceive salaries or wages in excess of those gen-erally paid to Nauruans or Chinese. Europeanemployees of the British Phosphate Commissionersoperate on a 40-hour week and are granted threemonths' leave after 21 months of service.

Immigrant communities are not permitted tosettle in areas other than those specially preparedfor them. The movements of the indigenous in-habitants between 10 p.m. and sunrise and ofChinese outside their location at all times arecontrolled by ordinance, which, according to theAdministering Authority, is liberally interpreted.

In a petition (T/Pet. 9/5) transmitted to theMission, the Chinese community protested againstthis restriction. They also asked for improvementsin pay, rations, accommodation and working con-ditions and, in particular, urgently requested thatmembers of the community should be allowed tobring their families to Nauru.

The Visiting Mission was of the opinion thatthe three communities on the island lived in con-ditions of fairly complete segregation and thatthere were important differences in the way inwhich they were treated. While it was aware thata policy of complete non-segregation and non-dis-crimination on a small island having a temporaryChinese immigrant community as large as the in-

digenous population might create difficulties, theMission considered that present restrictions werefar too stringent. In general, the Mission observedthat the social life of the Chinese community wasa rather unattractive one and noted that gamblingwas rife in the location area. Nevertheless, it wasinformed that it was usual for some 65 per centof the Chinese whose contracts expired to signnew contracts.

The Administering Authority reported that theadmission of the families of Chinese workers toNauru had been the subject of close examinationbut no practical solution had yet been reached.The major difficulty, it stated, was that extra landwould be required and the Nauruan Head Chiefhad expressed the view that there should be nofurther encroachment upon the already limitedland available to the Nauruans. The Visiting Mis-sion, however, pointed out the importance of thecontribution of the Chinese to the economy ofthe island. It expressed the firm opinion that wivesand families of Chinese employees should be per-mitted to accompany them to Nauru at the ex-pense of the British Phosphate Commissioners,except for the first, or perhaps second, year ofemployment, and provided the employee con-cerned entered into a much longer contract thanone year and agreed to repatriation for himselfand his family at the termination of his last con-tract. The Mission was informed that the wagesof Chinese labourers were to be increased on 1July 1950 from £6 10s. to £8 a month and thoseof Chinese tradesmen from £14 to £16 a month.Other improvements in their contracts would in-clude half pay on the trip from Hong Kong toNauru and back and participation in a providentfund. The Mission expressed the view that thesemeasures to some extent met the complaints ofthe Chinese community against working condi-tions, but urged the British Phosphate Commis-sioners to keep in close touch with the HongKong authorities with a view to adjusting wagesupwards should there be any further increase inthe cost of living there, and to see that wageswere fixed at as high a level as the capacity ofthe industry permitted. It was pointed out by theAdministering Authority that the wages comparedmore than favourably with the rates paid in China,and, in addition, the Chinese were housed and fedat the expense of their employers. The freedomwith which new labour was applying and thehigh percentage of re-engagements were sufficientevidence that the wage rate was attractive, theAdministering Authority observed.


The Trusteeship Council, after examining thesituation, recalled its previous recommendationconcerning discriminatory provisions in the Chi-nese and Native Labour Ordinance and the Move-ment of Natives Ordinance; it requested the Ad-ministering Authority to press on with its reviewof discriminatory legislation with a view to mod-ifying the provisions of these Ordinances and toinform the Council of the results of its efforts.The increase in wage rates of the Chinese work-ers was noted with satisfaction by the Council.It expressed concern, however, at the prevalenceof gambling in the Chinese community and en-dorsed the view of the Visiting Mission thatgambling should be discouraged in every practicalway by the provision of alternative attractions andthe establishment of a normal family life.

On 15 March 1951, the Council adopted a res-olution (323(VIII) ) on the petition. It notedthe observations of the Mission and the Adminis-tering Authority and urged the latter to reviewits policy with a view to eliminating the restric-tions on the movements of the Chinese workers.It also urged the Administering Authority, andthrough it the British Phosphate Commissioners,to keep the matter of wages under constant re-view, with a view to adjusting wages upwardsand fixing them at as high a level as the capacityof the industry permitted and keeping pace withthe cost of living in the Territory.

With regard to the wives and children of theChinese workers, the Council had recommendedin 1950 that the Administering Authority find ahumane solution to this problem. It drew the at-tention of the petitioners to this recommenda-tion and at the same time recommended that theAdministering Authority endeavour to find a so-lution along the lines suggested by the VisitingMission. The Council further recommended thatthe Administering Authority consider grantingfull pay to Chinese employees during their tripto Nauru. As to other complaints made by theChinese community, the Council noted, inter alia,that according to the Administering Authority'sobservations, the handling of remittances of moneyto China had been improved, that further stepshad been taken to provide the Chinese with thefood to which they were accustomed, and thatthe number of Chinese per sleeping hut had beenreduced from fourteen to twelve. It urged the Ad-ministering Authority to continue to improve theliving conditions of the Chinese, and, in particu-lar, to reduce further the number of Chinese oc-cupying the same hut and to take the necessary

precautions to meet the threat of a water short-age. The Council also recommended that the Ad-ministering Authority consider granting a three-day Chinese New Year holiday in accordance withChinese custom, as requested by the petitioners.

Nauruans — the Council of Chiefs (T/Pet.9/-6) and P. James Aingimea (T/Pet.9/2) — alsorequested improvements in wages and workingconditions and complained of differences in thetreatment accorded to European and Nauruanworkers. The Mission did not consider that, ingeneral, the Nauruans were performing the sametype of work as the Europeans or Chinese. Obvi-ously, the wage policy for Nauruans should pro-vide for a decent standard of living and incentivesfor greater effort. The Mission considered that itwould remove a very real feeling of discriminationif the 40-hour week were applied to all communi-ties. In its annual report, the Administering Au-thority referred to the increases in the wages ofNauruan employees of the Administration (seeabove) and stated that the wages of Nauruanemployees of the British Phosphate Commission-ers had also been increased. It added, in com-menting on the petitions (T/852), that in 1946hours of work for all employees had been re-duced from 54 to 44 per week, considered suitablefor the phosphate industry at Nauru. In order toobtain essential European staffs it had been foundnecessary to engage them on the basis of a 40-hour week. Overtime rates of one-and-a-halftimes wage, plus bonus, were paid and considera-tion was being given to the question of doublepay for overtime work on Sundays and holidaysfor all employees.

The Council noted with satisfaction the recentwage increase. In a resolution (320(VIII)) on thepetition, it also noted that, as had been suggestedby the Mission, the Administering Authority andthe British Phosphate Commissioners had beenreviewing in a sympathetic spirit the wage scalesof Nauruan workers. It expressed the hope thatthey would continue to give attention to thisproblem and recommended that the working con-ditions in the Territory be re-examined with aview to establishing a uniform working week forall employees without discrimination, the addi-tional work to be paid for at the same overtimerate. The Administering Authority was asked tokeep the Council informed on this question.

The Visiting Mission received a petition (T/-Pet.9/3) on behalf of a number of Pacific island-ers who wished to return, either on a visit orpermanently, to the Marshall Islands. The Mission

Non-Self-Governing Territories and Trusteeship Questions

considered that the Nauruans would gain fromcloser contacts with their neighbours to the northand suggested that the Council invite the Gov-ernments of Australia and the United States totake steps to satisfy this request if it were reason-ably possible to do so. This suggestion was accept-ed by the Council, which drew attention, in itsresolution (321(VIII)) on the petition, to itsearlier suggestion that the Administering Author-ity study the possibility of facilitating the move-ment of such persons. The Council also noted thatconsultations on this question were being held bythe two Governments concerned and asked to bekept informed of developments.

The progress of the arrangements made in 1949to construct 250 European-style houses for rentalby Nauruans was reviewed by the Council. It wasinformed that, at the end of January 1951, a totalof 222 houses had been commenced, of which 187had been completed except for minor items. TheVisiting Mission considered the rental (6s. perweek) very small, but observed that the Nauruansfound it difficult to pay for the necessary furnitureand this had stood in the way of the immediateoccupancy of the houses already completed. Toovercome this problem, the Administering Author-ity stated, it was agreed during negotiations with theCouncil of Chiefs regarding war damage follow-ing the Japanese occupation of Nauru that £15,000would be made available by the AdministeringAuthority and credited to a furniture fund. More-over, the Nauru Co-operative Society had estab-lished a joinery workshop, and was manufacturingdomestic furniture for the new houses. The Trust-eeship Council expressed satisfaction at the furtherimprovement in the housing project and at theenterprise of the Nauru Co-operative Society.

Public health facilities in Nauru comprise asmall general hospital for Nauruans, which treated363 in-patients and 3,051 out-patients during1949-50, a leper settlement, a tuberculosis sana-torium and two out-patient clinics; additions andgeneral structural developments were being made.A government medical officer and a qualified nurs-ing sister were appointed during 1949-50, theAdministering Authority reported, and the totalstaff of the Health Department was increased byfive. The British Phosphate Commissioners main-tain small hospitals for Europeans and Chinese,which treated 968 in-patients and 4,005 out-patients during the year. The Trusteeship Councilcommended the Administering Authority on theexpansion of the health services and requested it

to expand the training of Nauruans for the medi-cal profession.

d. EDUCATIONAL DEVELOPMENT

Education is compulsory for all Nauruan child-ren between the ages of six and sixteen. The Gov-ernment runs six primary schools for Nauruans,a special school at the leper settlement and aprimary school for European children. There isalso one mission primary school. The whole systemis under the direction of a European Director ofSchools, appointed in January 1950; he is assistedby a Nauruan supervisor. All government schoolteachers, other than the director and the teachersof the European school, are Nauruans withoutprofessional qualifications. The AdministeringAuthority reported that sixteen Nauruans werestudying overseas, compared with ten the previousyear; two were in their final year at the CentralMedical School at Suva, Fiji. Since June 1950, oneNauruan completed a three-month intensive studycourse in Australia as an x-ray operator.

The Visiting Mission was informed that theobjective of the Administration in the field ofeducation was to establish a central primary school,together with a domestic science centre for girlsand a post-primary school, with emphasis on tech-nical subjects, for boys. The Mission consideredthat this programme, supplemented by scholarshipsto Australia and Fiji, was sufficient, but pointedout that no effective steps were being taken toimplement it, and referred to the complaints oflack of progress in this field made by the Councilof Chiefs (T/Pet.9/6). The Trusteeship Councilwas subsequently informed by the AdministeringAuthority that the Director of Education, in dev-eloping the projected plan for secondary educationon the island, had initiated a training course forNauruan teachers. While noting the increase inthe number of students studying overseas, theCouncil recommended that the AdministeringAuthority complete as a matter of urgency theprojected educational facilities on Nauru, which,it stated, should include secondary education. TheCouncil also recommended that the AdministeringAuthority increase specialized training for teachers,and requested it to give in its next annual reporta fuller account of the development of secondaryeducation. The recommendations were called tothe attention of the Council of Chiefs by resolu-tion 324(VIII).

653


2. New Guinea, Administered byAustralia

New Guinea consists of approximately 600islands with a total land area of about 93,000square miles. The indigenous population in 1950was estimated at over one million, and the non-indigenous population at 8,680 including 6,201persons of European nationalities. The Adminis-tering Authority reported24 that a census beingtaken in areas under administrative control wasexpected to be completed by the end of June 1951.

By means of peaceful penetration by patrols, theAdministering Authority expected that the entiresquare miles under administrative control; of theremaining uncontrolled areas, 11,280 square mileswere under administrative influence, 2,610 squaremiles were under partial influence, and 18,290square miles had been penetrated by patrols. TheAdministering Authority expected that the entireTerritory would be under full government controlby the end of 1954. The Trusteeship Councilexpressed the hope that the Administering Author-ity would make all possible efforts to complete thistask and indicated its satisfaction that furthersections had been brought under control during1949-50.


On 1 July 1949, the Papua and New GuineaAct, 1949, providing for the administration ofthe Trust Territory in administrative union withthe Territory of Papua, was brought into opera-tion. Under this Act an Administrator is chargedwith the duty of administering the governmentof both Papua and the Trust Territory on behalfof the Commonwealth. The Administrator is ad-vised and assisted by a joint Executive Councilappointed by the Governor-General of Australia.

A joint Legislative Council for Papua and NewGuinea, empowered to make ordinances for thepeace, order and good government of the Ter-ritories, is provided for in the Act. Until its estab-lishment, however, these powers are vested inthe Governor-General. The Legislative Councilis to consist of 29 members—the Administrator;sixteen official members; and twelve non-officialmembers, of whom three are to be Natives. Threeof the non-official members are to be elected onconditions prescribed by ordinance. All othermembers (except the Administrator) are to beappointed by the Governor-General on the nomi-nation of the Administrator. In 1949, the Trus-teeship Council had recommended that the Ad-

ministering Authority increase indigenous mem-bership in the Legislative Council and eventuallyestablish an indigenous majority. It had alsorecommended that the Administering Authorityconsider establishing a separate legislature forNew Guinea. During its eighth session in 1951,the Trusteeship Council was informed that theestablishment of the Legislative Council was stillunder consideration. Noting this, the Councilurged the Administering Authority to proceedwith the establishment of a legislative body with-out further delay, and to take early steps to givegreater participation to the indigenous inhabi-tants in accordance with the Council's earlierrecommendation.

A joint public service is provided for underthe Papua and New Guinea Act, 1949. As of30 June 1950, according to the AdministeringAuthority's report, 1,314 of the 1,573 classifiedpositions were filled, all by European officials. Theyear before, there had been 1,081 officials in theterritorial service. The Visiting Mission whichwent to New Guinea in 1950 was impressed withthe devotion to duty of these officials and theirknowledge of local conditions. It felt that theirsalaries, family allowances and housing conditionsshould be improved, in order to keep in servicemen already trained and to attract the largenumber of young and able elements required forthe huge task facing the Administering Au-thority. The Trusteeship Council was informed bythe Administering Authority that increases varyingfrom 10 to 25 per cent in the cost-of-livingadjustment, territory allowance and salaries hadbeen made since the publication of the annualreport. This was noted with satisfaction by theCouncil, which expressed the hope that the Ad-ministering Authority would continue to improveconditions of service for the officers of the Admin-istration and would give particular attention tothe improvement of their housing.

Indigenous inhabitants employed by the Admin-istration in 1950 numbered 10,979, including7,172 employed as general labourers and 1,544 inthe police force, the Administering Authority

24 Commonwealth of Australia, Report to the General

Assembly of the United Nations on the Administrationof the Territory of New Guinea from 1st July, 1949 to30th June, 1950 (Gov't. Printer, Canberra, 1950). Fordetailed discussions of this report in the TrusteeshipCouncil, see summary records of the eighth session ofthe Council (30 January-16 March 1951); summariesof the observations of individual members are includedin the Council's report to the Assembly (A/1856). Forgeneral discussion in the Assembly concerning conditionsin Trust Territories, see pp. 768-72.


reported. It described the opportunities providedfor training workers in technical trades and skillsand the facilities available for professional andmedical training. The Council recommended thatall necessary steps be taken to train the indigenousinhabitants of New Guinea so as to enable themas soon as possible to fill more responsible postsin the Administration of the Territory.

The Administering Authority stated that it wasits policy to recognize the tribal system and indi-genous customs, except in the case of customsrepugnant to humanity or contrary to the concep-tions of justice or morality. The establishment ofadvisory councils for Native matters and of Nativevillage councils, it reported, was provided forunder the Papua and New Guinea Act, 1949. AnOrdinance, approved on 30 December 1949,authorized the Administrator to establish villagecouncils and specified their duties and powers,which include the maintenance of peace, order andgood government in their areas.

The Visiting Mission noted that the establish-ment of village councils had been postponed foradministrative reasons, but that it was expectedthat such councils would be established in mostdistricts of the Territory by the end of 1951,depending on the availability of Administrationpersonnel to guide and advise chiefs and villagersand the response of the people to the new systemand their ability to understand it. With few excep-tions, the Mission found no regional or territorialconsciousness on the part of the population. Fromits brief contacts, it gained the impression that,in general, the indigenous inhabitants had placedtheir trust in the Administering Authority andwere expecting it to raise them at a quick pace toa comparatively high level of economic and socialprogress. It observed that, in spite of the changesbrought into indigenous life during the last 50years, the village remained the main feature of theNative political organization everywhere in NewGuinea. Activities apparently were regulated byparamount chiefs when several villages weregrouped together and by Luluais or ordinary chiefsin single villages or parts of a village. The chiefswere appointed by the Administration and wereresponsible to it for the order and behaviour ofthe population. Noting the position of the chiefsand evidence of their dissatisfaction, the Missionstated that it would have recommended that somemeasures be taken to improve their status had itnot been informed that the present system ofchiefs would be continued only until replaced byvillage councils.

At its eighth session, the Trusteeship Councilwas informed by the Administering Authority thatthree village councils had already been established,two in the District of New Britain, and one in theManus District. It was intended, as part of thepeople's progressive development, both in execu-tive responsibility and in their representative char-acter, to establish a system of councils at village,area, district and regional levels, each councilacting as an electoral "authority" for the councilsenior to it, and the regional council electingmembers to the Legislative Council.

The development of organs of local governmentwas considered by the Trusteeship Council as oneof the surest ways of promoting the politicaladvancement of the indigenous inhabitants andof fostering democratic institutions. Accordingly,it recommended that the Administering Authoritymake every effort to establish additional villagecouncils and, as soon as practicable, area councils,in the more advanced sections of the Territory.

The Administering Authority's report revealedthat no judicial tribunals exclusively composed ofindigenous inhabitants were recognized as a partof the judiciary of the Territory. Although thePapua and New Guinea Act, 1949, authorizes theestablishment of such courts, which would sup-plement the existing courts for Native affairs,their actual establishment was still under con-sideration. Noting this, the Trusteeship Councilurged the Administering Authority to implementthe provisions of the Papua and New Guinea Actrelating to the establishment of Native courts andto report on the matter.

The Visiting Mission drew attention to a stateof unrest in the Manus District. Shortly beforethe Mission's arrival there, an individual by thename of Paliau had been convicted and sentencedto six months' hard labour for spreading "falsereports which tended to cause trouble among thepeople in that he did tell one Malai of Pam thathe (Paliau) had power to appoint members of acourt and with them to settle all court cases, andthat no cases were to be brought before Govern-ment Magistrates". This charge, the Missionlearned, reflected only a small part of his pastactivities. In 1946, he started to encourage thepopulation to boycott the Administration andbegan spreading his new religious doctrine, whichoriginated in a "vision" he had during his sleep;in 1946-47, due to his incitement, village recordswere burned and churches desecrated. His anti-government propaganda also included anti-Euro-pean and anti-Asian action, his aim being to drive


all foreigners out of Manus and to make himselfruler of the island. At the end of 1949, an arearepresenting one-sixth of Manus island was entir-ely under his control. Life was completely regim-ented; the population was submitted to militarydrill and any refusal to obey Paliau's orders wasmet by fine or imprisonment. Prostitution wasencouraged and organized; the use of money wasforbidden, currency being replaced by barter;clandestine councils were set up, having extensiveauthority to enforce the new regime. The popula-tion was forbidden to attend government or mis-sion schools, to receive medical attention fromgovernment or mission institutions, to bring anycase before the courts, and generally to have anycontact with foreigners. The new ways of life wereenforced in the name of religious as well aspolitical necessities.

The Visiting Mission noted that the regulationsregarding hygiene and sanitation were strictlyapplied in the villages, and that the preaching ofthe doctrine of the brotherhood of man, limitedas it was, awoke a new consciousness in the mindsof the people. According to some informationreceived by the Mission, about 3,000 persons weredeeply involved in the Paliau movement, and outof about 6,000 Roman Catholics at least 1,500 hadsevered all relations with their clergy. Local offi-cials, the Mission reported, were of the opinionthat the movement was rapidly declining since theimprisonment of its leader and that a strict atti-tude toward adherents would be sufficient to endthe disturbance. The Mission, however, heardspeakers, including Luluais, ardently supportPaliau and protest his imprisonment and, accord-ing to some information, the movement was notlosing ground. The Mission took the view thatthe movement could represent much more than alocal and temporary disturbance arising from thedisruption of the war period. It learned of similarmovements in the Madang District, and it notedthe movement known as the "cargo cult" whichexisted in various islands of the Pacific. It con-sidered that all these movements might be due tothe unrest which resulted from the material displayof wealth by the armed forces, an unrest whichwas utilized by ambitious and imaginative indivi-duals to establish themselves in power. Since theseanti-social trends had deep spiritual as well aspolitical, social and economic implications, theMission felt they should be kept under the closestobservation to discover their full causes, so thatthe appropriate remedies might be taken.

At the eighth session of the Trusteeship Coun-cil, it was stated on behalf of the AdministeringAuthority that the circumstances surrounding thePaliau incident had been exaggerated, that themovement had been fully investigated, and that ithad been found that a number of allegations madeto the Visiting Mission could not be substantiated.Paliau was a natural leader who had been trying toimprove the lot of his people and who had donemuch to assist the Administration. He had beenconvicted and imprisoned for six months on acharge of spreading false reports in that he toldthe people he had power to appoint magistrates.He had returned to Baluan Island and the situationthere was now normal. After reviewing the matter,the Council asked the Administering Authority toinclude in its next annual report full informationon the Paliau movement, the so-called "cargocult", and similar movements in the Territory, andon the relation, if any, between these movements.

b. ADMINISTRATIVE UNION OF PAPUA ANDNEW GUINEA

The various aspects of New Guinea's participa-tion in the administrative union of Papua andNew Guinea, earlier examined in 1949 and 1950by the Committee on Administrative Unions andthe Trusteeship Council, were again reviewed bythe Standing Committee on Administrative Unions.Its observations (T/916) were adopted by theTrusteeship Council at its ninth session, held from5 June to 30 July 1951, and incorporated in theCouncil's report on New Guinea to the Assembly.

The Council recalled the decisions made con-cerning the projected Legislative Council at itsfifth session and during the examination of theAdministering Authority's report at its eighth ses-sion (see above), as well as the observations madein 1950 by the Committee on AdministrativeUnions.25 It noted that, in the absence of the jointLegislative Council, legislation since the establish-ment of the administrative union had been pro-vided through 65 Ordinances proclaimed by theGovernor-General. After comparing the NativeLabour Ordinance, 1935-39, which provided that,in general, Native labourers were not to beremoved from New Guinea, with an Ordinanceenacted in 1950 providing that they were not tobe removed from Papua and New Guinea, theCouncil decided that the operation of the newOrdinance should be kept under review. The same

25 See Y.U.N, 1950, pp. 773-74.


decision had been reached in 1950 regarding thejudicial system; at its ninth session, the Councilstated that, so far as it had been informed, thereappeared to be no substantial change in the situa-tion and that such change was unlikely until socialconditions had changed considerably. It thereforehad no further observations at that time except tonote that, although the principal seat of theSupreme Court under the administrative union isat Port Moresby, in Papua, the Court held 28sittings in New Guinea during 1949-50. Similarly,the Council was of the opinion that, since thejoint economic, social and educational programmesfor Papua and New Guinea were still largely inthe formulative stage, there was as yet nothing toreport regarding the preservation of the separateinterests of the Trust Territory and its inhabitants.

In 1950, the Council had listed a number ofsafeguards26 which it considered necessary to en-able it to perform its supervisory functions and toprotect the separate status of a Trust Territoryinvolved in an administrative union. In this con-nexion, the Council noted that the AdministeringAuthority's annual report for 1949-50 contained,for the most part, separate financial, statistical andother data relating to New Guinea; it expressedthe wish, however, that future reports would indi-cate which of the classified posts in the joint publicservice of Papua and New Guinea (see above)applied to the administration of the Trust Terri-tory. The other safeguards enumerated appearedto the Council to be fully observed.

c. ECONOMIC DEVELOPMENT

The economy of New Guinea is predominantlyagricultural. Copra (36,925 tons of which wereproduced in 1949, as compared with a pre-warproduction of 70,000 tons) is the principal crop.The mining of gold, the only mineral exploited,also constitutes an important feature of the eco-nomic life of the Territory; according to theAdministering Authority's report, however, theoutput had not yet reached the pre-war level.There are no major secondary industries and theprocessing of export crops is confined almostentirely to the cutting and drying of copra, thefermentation and drying of cocoa beans and therelatively small manufacture of desiccated coconut,amounting to 652 tons during 1949-50 (comparedwith 215 tons the year before). There were alsonineteen sawmills in operation; during 1949-50,these produced one million super feet of timber.The Territory is dependent upon external sourcesof supply for practically all manufactured goods

and foodstuffs apart from the locally-grown sub-sistence crops.

An increase from 30,219 to 32,251 in thenumber of indigenous inhabitants in paid employ-ment was emphasized by the Administering Au-thority as the main event in the economic life ofthe Territory during 1949-50. Otherwise, the indi-genous inhabitants were engaged mainly in pro-ducing food for their own consumption, and theAdministering Authority was continuing its effortsto improve indigenous agriculture and animalhusbandry. According to the annual report, Nativecopra production was increasing; it amounted toover 5,000 tons, valued at approximately £220,-000.27 Apart from their small copra drying unitsand the making of clay pots, nets and string bags,which are exchanged among themselves, the indi-genous inhabitants are encouraged to engage inthe manufacture of small items of furniture andthe sale of Native carvings. All other economicactivities are controlled by non-indigenous inhab-itants—merchandising, shipping and air services,agricultural production and mining by Europeans;and trading, tailoring, and carpentry by Chinese.

According to the Administering Authority'sreport, the Territory has only 1,931 miles of roadsand 1,804 miles of bridle-paths; heavy rains andfrequent landslides make their maintenance aproblem. There are 75 aerodromes throughout theTerritory and improvements in air communicationswere made during 1949-50. A regular passengerand freight service between Australia and NewGuinea was maintained and three barges werebrought into commission to facilitate copra hand-ling in Rabaul Harbour.

The Visiting Mission observed that the Terri-tory had not yet fully repaired the heavy damagesof the war. Conditions under which the indigenousinhabitants were living were, generally, the sameas before the war, but the living and workingconditions of some communities were below thepre-war standard. The Mission described NewGuinea as a territory with vast possibilities fordevelopment. A methodical government geologicalsurvey had already been undertaken, the Missionreported. It learned that the Australian Govern-ment had decided to form, in conjunction withthe British Aluminium Company, Ltd., of London,a resources prospecting company to locate anddevelop large-capacity hydro-electric power schemessuitable for industrial use, particularly alum-

26 See p. 778.27 All figures in this section are in Australian currency:

£A125=£ Sterling 100 = $US 280.


inium production, and to prospect for bauxite andminerals related to aluminium production. TheAustralasian Petroleum Company was pursuing itsresearch for oil, and there was some hope thatit would be successful. However, the Mission hadno precise information about the importanceattached to those activities in the Trust Territoryitself. The Mission also learned that the Adminis-tering Authority proposed to investigate, in con-sultation with banking institutions, the measureswhich could be taken to assist persons or com-panies wishing to settle in New Guinea and toprovide them with necessary financial facilities.

The Mission found that no substantial pro-gramme for road building was envisaged, as theAdministering Authority considered the organiza-tion of education, health and other services moreurgent. The Mission, however, expressed its con-viction that the building of roads, without whichit could conceive of no permanent and steadyprogress, should be given a high priority. In viewof the enormous need for capital investment, itconsidered that private enterprise should be en-couraged to develop the resources of New Guinea.Consideration should also be given to the trainingof technicians, mechanics, carpenters and otherskilled workers. From its official contacts, theMission gained the impression that it was the firmintention of the Australian Government and thelocal Administration to spare no effort to advancefully the economic progress of the Trust Territory.

The Administering Authority assured the Trust-eeship Council, during its eighth session, that itwas intended that both non-indigenous and indi-genous inhabitants would be associated with theeconomic development of the Territory. Non-indigenous private enterprise, with proper safe-guards, would provide the technology, but the bulkof the work would be done by indigenous inhab-itants and this would play an important part intheir training and development, and prepare themfor an ever-increasing part in the development ofthe Territory.

The Council expressed the hope that the Ad-ministering Authority would push forward withits developmental plans and that these would leadto increasing indigenous participation in theproductive economy. It recorded its satisfaction atthe great development of air transport but notedthat road construction was still inadequate. Since,in its opinion, a fully developed road system wasnecessary for the proper economic development ofthe Territory and for the maintenance of adequatesocial and educational services, the Council urged

the Administering Authority to press forward withthe development of communications and, in par-ticular, to improve and develop the road systemin the Territory.

In a petition (T/Pet.8/5) presented to theVisiting Mission, Paramount Chief Tongania ofNew Ireland expressed the desire for generalprogress as well as the fear that the object of theEuropeans in New Guinea was to keep the indi-genous inhabitants in a primitive state. The Mis-sion, feeling that the petitioner's fear was needless,recommended that the Trusteeship Council reas-sure him. The Administering Authority observed(T/859) that its policy provided very clearly forthe welfare and advancement of the Native peopleand for their increasing participation in thenatural wealth of the Territory, and the Council,on 15 March 1951 (resolution 326(VIII)), drewthe petitioner's attention to this statement.

Since copra is almost the only cash crop forthe indigenous inhabitants, the Visiting Missionpaid special attention to problems related to itsproduction and exportation. Copra is marketed bythe Production Control Board, the producers atRabaul being paid £48 per ton. A stabilizationfund, established after the war by a levy of £5per ton of copra, amounted to £700,000. TheMission noted that a nine-year agreement oper-ating since 1 March 1949, provides for the pur-chase of the entire output of copra over and aboveAustralia's home consumption requirements bythe United Kingdom. Under this agreement,prices were lower than those paid on outsidemarkets. However, as stated by the Mission, theAustralian Government considered that the agree-ment constituted the guarantee required for copraproduction. It considered also that a fuller measureof security could be provided by continuing theoperations of the stabilization fund and stated thata study was being made with a view to ensuring toproducers a reasonable price level for a longperiod. Copra supplied to Australia is sold at thesame price as that fixed for copra supplied to theUnited Kingdom under the agreement, but theAdministering Authority informed the Missionthat it was negotiating for the opening of themarketing of New Guinea copra to private enter-prise, subject to the restrictions necessary to allowimplementation of the agreement with the UnitedKingdom; the monopoly of the Production ControlBoard would thus eventually come to an end.

On several occasions the Mission heard com-plaints that the price paid for copra either byChinese buyers or by agents of the Production


Control Board was too low. The Mission expressedthe hope that the Administering Authority wouldensure, under its contemplated arrangement withprivate enterprise, that all facilities would be givento small producers to sell their copra at a reason-able price.

In this connexion, the New Ireland Native Clubpetitioned (T/Pet.8/6) for "a fair chance to buycopra sacks" and "fair prices in the Chinese stores".The Mission recommended that the TrusteeshipCouncil inform the petitioner that the matter offair trading had been brought to the attention ofthe local Administration. Commenting on the peti-tion, the Administering Authority explained (T/-859) that there had been a shortage of copra sacksthroughout the Territory, but this had been largelyovercome by the temporary removal of a prohibi-tion against the use of second-hand sacks. It wasstated that prices in the trade stores were generallyreasonable and any complaints usually could beattributed to a lack of appreciation on the part ofthe Natives of the rising cost of living. Afterexamining the petition, the Trusteeship Council,on 15 March 1951 (resolution 327(VIII)), drewthe petitioner's attention to the AdministeringAuthority's observations.

According to the Administering Authority'sreport, the value of external trade during 1949-50was £9,026,777, an increase over the previous yearof £1,430,647—£397,926 in imports and £1,032,-721 in exports. Excess of imports was £556,821in 1949-50, as compared with £1,191,616 in 1948-49. Exports of local origin (valued at £3,675,827)showed an increase of £1,042,899 over 1948-49,the principal contributing items being copra(£746,062), gold (£228,997), desiccated coconut(£91,769) and whole coconuts (£1,435). AUreceipts from imports and exports to and fromNew Guinea are recorded separately and the Ter-ritory is not involved in any customs union, theAdministering Authority reported. No customsagreements had been entered into with the Terri-tory and there were no preferential duties on itsimports. To encourage and assist the production ofcertain items in Papua and New Guinea, however,Australia allowed the importation of specifiedproducts (including cocoa-beans, coffee and fruits)into Australia free of import duty. In this con-nexion, the Visiting Mission noted that the Ad-ministering Authority intended to establish auniform customs tariff for New Guinea and Papuaand, at the same time, to revise the schedules ofduties with a view to moving the incidence oftaxation from necessities important for the dev-

elopment of the Territories to less essential items.It was expected that the new tariff would takeeffect as of 1 July 1950. The Administering Au-thority's proposed policy for closer economic rela-tionship between Australia and New Guinea, theMission was told, might meet with practical diffi-culties because of limitations on the grant ofpreferential treatment contained in the GeneralAgreement on Tariffs and Trade (GATT).

Gold is exported only to Australia. During1949-50 the quantity of gold produced amountedto 84,958.135 fine ounces valued at £1,210,225.The price of gold was increased from £10 15s. 3d.to £15 9s. 10d. per fine ounce as from 19 Septem-ber 1949, the Administering Authority reported.Fees for rights, licences and leases and a royaltyof 5 per cent on all gold mined are payable to therevenue of the Administration for the use andbenefit of the Territory; the revenue derived fromthe royalty amounted in 1949-50 to £58,595 10s.6d. The Trusteeship Council in 1950 had urgedthe Administering Authority to give serious con-sideration to increasing the territorial revenuefrom gold production either by increasing theroyalty or by imposing new income, business-enterprise or other taxes on the gold industry.According to the information received by theVisiting Mission, a study of the whole question ofthe royalty on gold exported was being made butno decision had yet been taken. The Council,noting at its eighth session that the question ofroyalties was still under consideration, repeated itsearlier recommendation and, in addition, requestedthe Administering Authority to give as full infor-mation as possible concerning the gold miningindustry.

New Guinea's internal revenue for 1949-50amounted to £942,077, derived mainly from cus-toms (£719,665) and mining receipts (£69,152).In addition, the Territory received a non-repayablegrant of £2,281,140 from Australia, as comparedwith a grant of £1,588,850 in 1948-49. Expendi-ture during 1949-50 increased to £3,223,217(£2,593,304 in 1948-49). No direct taxation wasimposed during the year. It was stated by theAdministering Authority that all questions of fiscalpolicy, including the abolition of the head tax,were under consideration, in accordance withearlier recommendations of the Trusteeship Coun-cil. Noting this, the Council asked the Adminis-tering Authority to inform it of developments.

Data in the Administering Authority's reportrevealed that, of the total land area (59,520,000acres), 915,804 acres had been alienated from the


indigenous inhabitants—519,380 acres of freehold,160,573 acres of leasehold, 209,240 acres held bythe Administration and 26,611 acres held in trustfor the Natives. The Visiting Mission was inform-ed by the Administering Authority that the indi-genous inhabitants could only dispose of landwhen the Administration was satisfied thatsuch disposal would not be detrimental to theirinterests, and that it proposed to carry out aninvestigation into the land holdings of the indi-genous inhabitants with a view to determiningwhat further areas would be available for non-Native development, without injury to the interestsof the inhabitants. The Mission felt that theAdministering Authority's policy of recognizingthe paramountcy of indigenous ownership con-stituted an excellent safeguard against futuretroubles. The Mission expressed its conviction thatthe Administering Authority's policy would ensurethat no land in the Territory would be alienatedunder freehold and that all requirements would bemet by leasehold only, under long-term lease ifnecessary. It suggested that, when and where pos-sible, alienated land be returned to the indigenouspopulation. At its eighth session, the TrusteeshipCouncil was informed by the Administering Au-thority that an ordinance was being prepared toestablish a commission to investigate the landsituation. The Council noted the Visiting Mission'sobservations regarding the policy of the Adminis-tering Authority and asked to be kept informedof the work of the land commission.

The Visiting Mission noted that, although theforests of the Territory were extensive, they al-ready needed a careful conservation policy. Theimportance of the sawmill industry had greatlyincreased since before the war and an increaseddemand for timber was expected. The policy theAdministration intended to pursue was outlinedto the Mission. It included:

(1) the development of the timber industry on soundforestry principles with provision for reafforestation ofall areas; (2 ) as a general rule, rights to forest areaswould be obtained only as the result of public tenderand in designated areas; (3) measures would be takento meet local and territorial requirements; and (4) aroyalty would be payable to the Administration on alltimber cut. The Mission was also informed that theDepartment of Forests was waiting for sufficient recruitswith basic qualifications in order to establish an indi-genous ranger-training school.

d. SOCIAL DEVELOPMENT

The Administering Authority reported thatalmost all activities of the Administration arecalculated in some degree to advance either directly

or indirectly the social welfare of the indigenouspeople, particularly their health and education.The social pattern of indigenous society in theTerritory, it added, rendered the need for socialservices less pressing than in some countries.

A recently established Native Labour Branch,it was stated, would conduct inspections of em-ployment conditions, advise employers and workerson their obligations to one another and assistthem in establishing and maintaining harmoniousrelations.

The Visiting Mission noted that the recruitmentof coastal and other lowland labourers for workat low altitudes had reached a critical stage, andthat the Administering Authority had thereforepermitted the employment of Central Highlandsworkers in any part of the Territory, subject tocertain compulsory health precautions to be takenby the employers. To protect these workers frommalaria infection, the Mission suggested, the issu-ance of mosquito nets should be made compulsory.It was assured that this would be done. In theMission's opinion, much more indigenous labourthan was at present available would be required tocomplete the rehabilitation of the Territory andto carry out all governmental development workwhich was projected, even without taking intoconsideration the hoped-for increase in privateenterprise.

The Administering Authority pointed out thatthe Native Labour Ordinance, 1946, was underreview and a new ordinance was expected to bepromulgated. It later informed the TrusteeshipCouncil, during the latter's eighth session, that thenew Native Labour Ordinance, 1950, had comeinto operation on 1 January 1951; no contracts ofservice made under the repealed Ordinance wouldremain in force after the end of 1951. Under thenew Ordinance, the whole relationship betweenemployers and labourers would come under thecivil law. As had been recommended by the Coun-cil, the system of indentured labour was abolishedand there were no penal provisions for breach ofagreement, such as were provided for in therepealed Ordinance for absence from work with-out reasonable excuse. The Council expressed itssatisfaction with the action taken by the Adminis-tering Authority.

Following requests by the Council at its fifthand seventh sessions that a cost-of-living surveybe undertaken, the Administering Authority hadassured the Council that it would make such asurvey in some of the larger towns. The result ofthis survey was not available for inclusion in the


report of the Administering Authority for 1949-50, however. In this report, the AdministeringAuthority stated that, as most Natives live under asubsistence economy and barter their surplus, itwas not practicable to conduct a general cost-of-living survey. Workers, in addition to receiving aminimum of 15s. per month in wages, are clothed,fed, and provided with their fare home at theexpense of their employers; these benefits are alsoextended to their families if they reside together.

The Visiting Mission was unable to assemblesufficient data to be able to express any opinionconcerning the adequacy of wages. It noted thatthe cost of rations and clothing had already beenadjusted upwards, but that minimum cash wagesremained the same. It recommended that a cost-of-living survey be made as soon as possible andstudied in relation to wages. During its visit, theMission observed that services rendered by indi-genous individuals to the Administration weresometimes paid for in Native goods, often inshell money, or salt. The Chief of a village nearRabaul showed the Mission with great pride hiswealth in shell money, said to amount in value toseveral thousand Australian pounds.

On enquiring as to the Administration's policy,the Mission learned that instructions were to begiven to all officers to have currency as well astrade goods on hand in order to satisfy possibledemands for currency. The Mission felt that, inthe interests of the indigenous inhabitants and ofa sound economy, efforts should be made for thecurrency of the Territory to become the onlymeans of payment. The Administering Authoritylater informed the Council that it was its policyto make payment in the currency of the Territory,but that, in areas recently brought under adminis-trative influence, the change had to be gradual soas not to upset the Native barter rate of exchange.Since the Council found difficulty in assessing therelationship between the real wage and the exist-ing cost-of-living, it asked the AdministeringAuthority to make available detailed data on thissubject. In the meantime, it requested the Admin-istering Authority to consider seriously furtherincreasing the minimum cash wages. Also, theCouncil noted that the information regarding acost-of-living survey in some of the larger townswould be supplied in the next annual report.

A petition (T/Pet.8/4 & Add.1) dealing witha number of subjects, including immigration, wasreceived by the Mission from the Chinese residentsof Rabaul and Kavieng. Enquiring into the matter,the Mission learned that Chinese who entered

New Guinea before 1922 have been granted thestatus of permanent residents, but those whoentered afterwards are not permanent residentsand must obtain every three years a permit toremain in New Guinea. The difficulties resultingfrom this ruling were outlined at length by theMission. Although certificates of exemption, onthe basis of a dictation test, are granted liberallyto permanent residents leaving to visit China, theMission stated, this is not the case with non-permanent residents, who dare not leave withoutfirst securing the exemption. Children born of anon-permanent resident father often have not beengranted the status of permanent residents. In thecase of non-permanent resident husbands and theirpermanent-resident wives, the Chinese fear thatthe families will be separated if the husbands arerefused permits to remain. While the Administra-tion's declared policy is to let wives and childrenaccompany those Chinese allowed to enter, theMission felt that this policy was not interpretedin a broad sense; it explained that wives whomarried permanent residents before 1922 are al-lowed to enter but that the position of those whomarried after 1921 had not yet been determinedand they therefore could not join their husbands.Many Chinese who came to New Guinea years agoas young men, leaving their wives and children inChina, now wish their sons to succeed them intheir business. According to the existing law,fathers must apply for entry of their adult sonsas "assistants" or "substitutes", who cannot residein the Territory permanently. A number ofChinese businesses, therefore, inevitably face ex-tinction at the death of their owners. The Missionwas of the opinion that, in the. circumstances, thegranting of permission for entry of permanent"substitutes" was logical and necessary. It furtherhoped that the Administering Authority wouldreview the matter of immigration as a whole in asympathetic spirit.

In its observations (T/859) on this petition,the Administering Authority stated that the sub-ject was under examination by the TerritorialAdministration and the Australian Government,but a decision had not yet been reached. In viewof this, on 15 March 1951, the Council decided,on the recommendation of its Ad Hoc Committeeon Petitions (T/L.152), to postpone considerationof the petition. The Ad Hoc Committee had alsoexpressed the hope that the Administering Author-ity, in its examination, would take into accountthe suggestions and recommendations of the Visit-ing Mission on the questions raised in this petition,


and had suggested that the Administering Author-ity be invited to include in its next report allnecessary information on the conclusions it hadreached.

The Administering Authority reported that theCriminal Code and the Police Offences Ordinanceswere being reviewed. The revision of these lawsand regulations had in the past been recommendedby both the Trusteeship Council and the Assembly.The particular provisions to which the Council andAssembly took exception related to: (1) corporalpunishment, although the Administering Author-ity reported that no sentences had been imposedfor a number of years; (2) the unlimited powersof the Administrator to prolong indefinitely thedetention of a prisoner declared an habitualcriminal; (3) the power of arrest; and (4) curfew.

At its eighth session, the Trusteeship Councilurged the Administering Authority to completethe review of the Criminal Code and the PoliceOffences Ordinance, keeping in mind the recom-mendations of the General Assembly at its fourthsession for the abolition of discriminatory lawsand practices, as well as the recommendations ofthe Council. In addition, it again recommendedthat corporal punishment be formally abolished.

The Administering Authority stated that itspolicy with regard to public health is: (1) tocontrol infectious diseases in the villages by allmethods of sanitation and treatment; (2) to treatall diseases and develop specialist services toimprove the welfare of all persons; (3) to trainan increasing number of indigenous inhabitantsso that they may take an increasing part in thepublic health programme; and (4) to improveespecially infant and maternal welfare. The Ad-ministering Authority reported a general improve-ment in the medical services during 1949-50. Thestaff increased, new institutions were established,adequate supplies of modern equipment and drugswere made available, and the erection of newhospitals was begun. The official medical personnelof the Department of Public Health included 35physicians and surgeons, two dentists, 31 qualifiednurses, 273 medical assistants, 699 Native medicalorderlies, five sanitation inspectors, four pharma-cists, sixteen laboratory assistants and 174 others.The improvement in the staff position was attri-buted largely to a decision to employ graduatesfrom European universities; 37 were appointedand took up duty in 1950.

The Administering Authority noted that it wasstill having difficulty in obtaining trained nurses,

medical assistants, pharmacists, health inspectors,technicians and dental mechanics, but hoped that,with the improved public service classification, theposition would improve. During 1949-50, 57,366indigenous inhabitants were admitted to Adminis-tration hospitals; tropical ulcer, yaws and malariaaccounted for half the admissions. Medical patrolsincreased to the extent that 131,471 indigenousinhabitants were examined in their villages. Untilsuch times as road systems would allow the easytransport of patients to hospitals, the Administer-ing Authority stated, these patrols continued tobe the best method of providing the great mass ofthe people with medical treatment. In addition,95,000 Natives were seen, and treated when neces-sary, during the anti-tuberculosis campaign con-ducted in the Central Highlands District. Medicalaid was brought to at least 8,000 Natives duringa medical survey undertaken in the New IrelandDistrict. During 1949-50, the number of Admin-istration village aid posts in the Territory in-creased by 130 to a total of 172. A marked increasewas also reported in the medical activities of theseveral mission organizations operating in theTerritory. Expenditures on public health, includingaid to missions, totalled £579,420 during 1949-50.

The Visiting Mission was impressed by theenthusiasm of the medical personnel. It pointedout, however, that the physical appearance of anumber of indigenous inhabitants it met, especiallychildren with many skin diseases, did not seem toindicate a very satisfactory condition of health.

At its eighth session, the Trusteeship Councilwas informed by the Administering Authority ofthe recent approval of a five-year hospital construc-tion programme at an estimated cost of £4,500,000plus £500,000 for additional movable hospitalequipment and furniture. The Council commendedthe Administering Authority for the progress madein the field of public health and expressed thehope that it would continue its work and wouldcomplete its hospital building programme onschedule, if not earlier.

In a petition (T/Pet.8/6) presented to theVisiting Mission, the New Ireland Club requestedmore medical assistance. Commenting on thisrequest, the Administering Authority stated (T/-859) that three medical officers had subsequentlybeen stationed in the New Ireland District; inaddition, a European nurse for Native welfaretravelled from village to village with a mobileclinic. This statement was called to the attention ofthe petitioners by the Council in a resolution(327(VIII)) adopted on 15 March 1951.


e. EDUCATIONAL DEVELOPMENTThe Administration stated that its educational

policy is to seek to attain universal literacy andthe development of the indigenous inhabitants asa community within their own environment. Edu-cation is not compulsory, and the Visiting Missionwas of the opinion that it was not practicable toapply compulsory education throughout the Terri-tory. Schools are conducted by the Administrationand missions, the latter being subsidized by theAdministration. No school fees are charged. TheAdministration exercises supervisory control overthe entire school system, but has no statutorycontrol over mission schools. The Visiting Missionnoted that, under a proposed new educationOrdinance, the Administration would be empower-ed to lay down in some detail the syllabus andsupplementary activities to be followed by themissions in schools and in the training of teachers.The Council expressed the hope that this Ordin-ance would provide for the supervisory controlby the Administering Authority of education andall educational institutions.

According to the annual report, the Administra-tion spent £282,669 on education during 1949-50,as compared with £135,097 and £97,257 during1948-49 and 1947-48 respectively. It was furthernoted by the Visiting Mission that the budget for1950-51 provided for an expenditure of £280,000,plus £170,000 for technical training, the totalrepresenting approximately 10 per cent of theterritorial budget. During 1949-50, Administrationschools increased from 44 to 50, attended by 2,827pupils, and mission schools from 1,790 to 2,360,attended by 85,899 pupils. The total number ofpupils increased from 67,385 in 1948-49 to 88,726in 1949-50, of whom all but 753 were indigenousinhabitants. Of 85,467 Native pupils attendingmission schools, 75,369 were in village schools,8,882 in intermediate schools, and 1,216 in highertraining schools. There were 3,300 teachers in1949-50 as compared to 2,540 in 1948-49; 125were in Administration schools and 3,175 inmission schools.

The Administering Authority pointed out thatthere are not yet enough teachers to meet thedemand for education. This, in the Mission'sopinion, was the limiting factor both with regardto the number of schools and the standard ofeducation provided in them. In 1949-50, it stated,84 indigenous students were receiving their initialteacher-training at the institution at Keravat,which provides a two-year course. A secondteacher-training school was to begin enrolling

students early in 1950-51, and the establishmentof a fully organized teachers college was envisagedwithin the next two years. Facilities for profes-sional and vocational training in medicine, healthand technical subjects were planned but, accordingto the Administering Authority's report, had notyet been provided in the Territory; meanwhile, itwas stated, qualified persons may attend highereducational institutions in Australia. The VisitingMission expressed the view that more intensiveefforts should be made to develop educationthroughout New Guinea as rapidly as possible.

The Council recommended that the Adminis-tering Authority take the necessary steps to expandelementary education in the Trust Territory and toafford the indigenous population further oppor-tunities of receiving secondary and higher educa-tion. Special attention, it suggested, should begiven to the training of indigenous teachers, theopening of more government schools and thegranting of a reasonable number of scholarshipsfor attendance at schools in and outside NewGuinea. After stating its satisfaction with thepresent teacher-training programme, the Councilexpressed the hope that the Administering Author-ity would increase its efforts in this respect andwould, in particular, complete the proposedteachers centre at Finschhafen as soon as possibleand develop the teacher-training project throughthe expansion of present facilities.

The need for teachers was reflected in one peti-tion (T/Pet.8/6), received by the Visiting Mis-sion at Kavieng, requesting assistance in securinga teacher. The Administering Authority assuredthe Trusteeship Council that as teachers completedtheir training in the near future at the trainingcollege at Keravat they would be sent to schools invarious districts, including the. school in Kavieng(T/859). By resolution 327(VIII) of 15 March1951, the Council drew the attention of the peti-tioners to this statement and, after noting the lackof fully qualified school teachers, again urged theAdministering Authority to make more intensiveefforts to improve the situation.

Paramount Chief Tongania complained (T/-Pet.8/5) that although his people wished to sendtheir children to school outside the Territory andwould pay their expenses this had been refused.The Trusteeship Council was assured by the Ad-ministering Authority, however, that there was nobar to sending indigenous children to Australiafor education, provided they were qualified to taketheir places in an English-speaking school andsatisfactory arrangements were made by their


parents to pay their expenses. The Councilinformed the petitioner of this assurance in resolu-tion 326(VIII) of 15 March 1951.

The Visiting Mission observed that the multi-plicity of languages in New Guinea presented avery great problem to educators. The Administer-ing Authority stated that the use of English ap-peared to be the ultimate solution to the problem;it reported that a linguist was making a surveywhich would serve as a basis for policy in respectof languages for particular areas. Certain points ofpolicy had already been established. The Missionnoted that few of the indigenous teachers werefluent in English and considered this a retardingfactor. It was of the opinion that it was necessaryto continue teaching in the local vernacular invillage schools, but welcomed the AdministeringAuthority's declaration that English was to be themedium of instruction in higher schools. TheAdministering Authority reported that an experi-mental mass literacy campaign in one district hadmet with considerable success but would not beextended until suitable vernacular reading materialfor the newly literate could be made available. Acommittee had been established to collect anddistribute suitable literature and both the Depart-ment of Education and the missions publishedperiodicals in the vernacular; radio and films werealso being used. The Trusteeship Council recom-mended that the Administering Authority intensifyits effort to expand the mass literacy campaign.

Interest in indigenous art and culture, theAdministering Authority reported, is encouragedin schools and among adults through guidance,meetings and arts and crafts exhibitions; manyrecordings of indigenous music in different locali-ties have been made and choral competitions havebeen held. The Council expressed approval of thesteps taken to encourage the development of theindigenous art and culture and hoped that theAdministering Authority would continue its effortsin this direction.

3. Western Samoa, Administered byNew Zealand

Western Samoa consists of two large islands(Upolu and Savai'i) and seven small islands andislets, with a total land area of 1,133 square miles.

According to the Administering Authority'sannual report,28 the population on 31 March 1950consisted of 71,900 Samoans, 5,693 part-Samoanspossessing European status, 322 Europeans, 176

Chinese and 64 Melanesians. The capital and chiefport is Apia, on the island of Upolu, with apopulation of about 10,000.


A substantial measure of self-government hasbeen granted the Samoan people under a newConstitution incorporated in the Samoa Amend-ment Act, 1947. The provisions of this Act, whichcame into effect in March 1948, closely followproposals made in 1947 by a special visitingmission sent by the Trusteeship Council, at therequest of the Administering Authority, to investi-gate a request by the Samoans for self-government.

The executive branch of government remainsentirely under the control of a High Commissionerappointed by the Administering Authority. Thereis no executive organ, but the High Commissionerhas a consultative relationship with two Samoanadvisory bodies: a new Council of State, whichconsists of the High Commissioner and the twohighest Samoan chiefs (Fautua); and the Fono ofFaipule, which consists of 41 members elected bythe matai (title holders or family heads) from thetraditional districts and sub-districts of WesternSamoa. The High Commissioner is required by lawto consult the Council of State on all proposedlegislation and questions relating to Samoan cus-toms. Similarly, the Fono of Faipule has a statutoryright to consider matters concerning the welfareof the Samoan people and to express opinions ormake recommendations to the High Commissioner.The Administering Authority reported that theFono discusses a very wide range of topics, in-cluding proposed ordinances, falling under twomain heads: (1) interest in the developing parti-cipation in self-government, and (2) matters ofdistrict welfare, such as roads and water supplies.

Wider powers are accorded to the Samoans inthe legislative field. The Territory's own LegislativeAssembly consists of fourteen Samoans (the twoFautua and twelve members elected by the Fonoof Faipule), five elected European members andsix official members. Under the new Constitution,

28 New Zealand: Department of Island Territories,

Report by the New Zealand Government to the GeneralAssembly of the United Nations on the Administrationof Western Samoa for the Year Ending 31st March, 1950(Wellington, 1950). For detailed discussions of thisreport in the Trusteeship Council, see summary recordsof the eighth session of the Council (30 January-16March 1951); summaries of the observations of indivi-dual members are included in the Council's report tothe Assembly (A/1856). For general discussion in theAssembly concerning conditions in Trust Territories,see pp. 768-72.


the Assembly enacts legislation on all purelydomestic matters, subject to the High Commis-sioner's assent on all Ordinances and his recom-mendation on all financial legislation. The Admin-istering Authority reported that the High Commis-sioner had on no occasion found it necessary toexercise his power of veto. The Assembly may notlegislate on matters of defence, external affairs andCrown land, nor on certain other matters affectingthe Constitution and the New Zealand ReparationEstates. During 1949-50 the Assembly was princi-pally engaged in adopting the estimates for thegovernment of the Territory, although ten Ordin-ances and eleven resolutions were also passedduring 1949. In the judgment of the AdministeringAuthority, the debates on all financial provisionswere keen and intelligent, and the Assemblyshowed a tendency towards conservation in ex-penditure and critical scrutiny of the governmentaccounts. All the Ordinances passed were intro-duced and sponsored by the Government, butmany of the motions were introduced by privatemembers. One decision of the Assembly was tohave its proceedings broadcast by the local radiostation; the Administering Authority consideredthat this might be of major importance in thepolitical education of the Samoans.

The Visiting Mission which went to the Terri-tory in 1950 described the constitutional reformsas far-reaching and in many ways novel to theSamoans. Nevertheless, it found among the leadersand representatives of the people dissatisfactionwith the part they were playing in the affairs ofthe Territory; they had a genuine and urgentdesire for immediate self-government, the Missionobserved. It noted that they recognized that theydid not as yet know how to operate many of theservices of government, but they regarded theseas matters on which they could hire technicaladvisers, and informed the Mission that they wereconfident of receiving help and advice from theNew Zealand Government and the United Nations.The Mission itself, while impressed by the politicalsense of Samoan leaders and by what it learnedof the progress achieved under the new Constitu-tion, was of the opinion that the Samoans werenot ready for full self-government. Its view wasthat they doubtless had the ability to manage theiraffairs in their own traditional ways; but theproblems of adapting these ways to conform withmodern political ideas, with modern economicfacts and with the need for elaborate and expensivesocial services, were very complex and difficult.Moreover, the Mission felt that the element of

democracy implicit, but by no means dominant,in the Samoan social structure must be developed,and that the political education of Samoans, parti-cularly of people in the outlying areas, neededmuch improvement. For the present, in the Mis-sion's view, emphasis must be placed on makingthe existing institutions work, to which end theAdministering Authority was devoting a neces-sarily considerable educational effort. The Missionconsidered, however, that this did not precludefurther development and that, in particular, waysshould be found for an increased participation bythe Samoans in the executive branch of govern-ment, at both the policy-making and administra-tive levels. It suggested the establishment of anexecutive council for this purpose.

The Administering Authority, in its observa-tions on the Mission's report, agreed with theMission's view that the Samoans were not readyfor full self-government and with its reasons forarriving at that conclusion. Every effort was beingmade to consolidate the present advances, theAdministering Authority stated, and Samoans weregaining a knowledge of governmental procedurewhich would be indispensable when further dev-elopment towards self-government was undertaken.The Administering Authority recognized thatSamoan participation in the formulation of high-level policy was desirable, and stated that it hadunder active consideration the steps by which thismight be achieved.

Commenting on the relationship between theLegislative Assembly and the Fono of Faipule, theVisiting Mission observed that the latter wasperhaps more truly representative of opinion inthe outlying districts and of the Samoans' tradi-tional way of life; the Mission was informed thatthere were in fact certain differences of attitudebetween the Samoans serving on the two bodies.In this connexion, the Samoans, in their discussionswith the Visiting Mission, requested that any deci-sions taken by the Fono on any matters touchingon the welfare of all sections of the communityshould be made effective by law. The Mission wasinformed that the High Commissioner would beprepared to introduce in the Assembly all mattersupon which the Fono, after prior discussion withhim, had taken decisions. In the Mission's opinion,this practice would be an interesting and helpfuldevelopment and would confer upon the Fono avirtual legislative initiative. The AdministeringAuthority stated that the Fono had expressedsatisfaction with the High Commissioner's read-iness to undertake this practice.


The Trusteeship Council, at its eighth session,asked the Administering Authority to keep itinformed of future developments in this direction.On the whole, the Council considered that thepolitical reforms introduced in 1948 were develop-ing satisfactorily, and drew the attention of theAdministering Authority to the observations ofthe Visiting Mission on the general politicaldevelopment of the Territory and its inhabitants.It recommended, however, that the AdministeringAuthority consider establishing an executive coun-cil in which Samoans could participate, as it feltthat the existence of such an organ would fostertheir political education. With regard to the Legis-lative Assembly, the Council asked the Adminis-tering Authority to keep under constant reviewthe possibility of introducing further reforms ofbenefit to the inhabitants.

The Administering Authority reported that aseparate Public Service of Western Samoa hadnow been established, falling under the controlof a Public Service Commissioner appointed bythe Administering Authority. The Public ServiceCommissioner is subject to direction by the NewZealand Minister of Island Territories: (1) in anymatter affecting New Zealand's responsibilitiesunder the Trusteeship Agreement; (2) in approv-ing regulations for the Samoan Public Service;and (3) in the appointment of senior officers. TheSamoans felt, as they told the Visiting Mission,that the Public Service Commissioner should besubject to the direction of the Council of Statein these matters. The Mission considered that theNew Zealand Government must retain control ofthe appointment of senior officers and of mattersaffecting its responsibilities under the TrusteeshipAgreement. At the same time, the Mission feltthat the Public Service Commissioner should besubject to direction by the High Commissionerin approving service regulations and in all otherpolicy matters. The Administering Authority, inits observations on the Mission's report, pointedout that it was a cardinal principle of NewZealand public service administration that thepublic service should be entirely divorced frompolitical control. It was largely for this reason thatin Western Samoa the Public Service Commis-sioner was not made responsible in policy mattersto the High Commissioner.

At the end of March 1950, the public serviceconsisted of 1,066 officers; of these, 872 wereSamoans, an increase from 488 in 1938-39 and682 in 1948-49. The Visiting Mission noted, how-ever, that these Samoan officials had not as yet

obtained high positions, most of which were filledby Europeans recruited in New Zealand. It expres-sed the hope that a proposed, but considerablydelayed, regrading and reclassification of all posi-tions would result in the removal of any instan-ces of discrimination on grounds of status thatmight exist in the service and also in the attain-ment by Samoans of positions of much greaterresponsibility. The Administering Authority statedthat the problem of staff-training would be oneof the Public Service Commissioner's immediateconcerns. The Trusteeship Council urged theAdministering Authority to press forward with itstraining programmes in order to ensure that anincreasing number of Samoans may become quali-fied to undertake higher responsibilities in theAdministration.

The question of local government in WesternSamoa, the Administering Authority reported, hadrecently been investigated by a Commission ofEnquiry. At present, Samoan district and villageofficials are elected or nominated by Samoan repre-sentatives and appointed by the High Commis-sioner. The Visiting Mission, after a discussionwith the Commission, expressed confidence in itsability to find a solution which, while paying dueregard to Samoan customs, would offer possibilitiesfor the suitable development of an organized sys-tem of local government. The AdministeringAuthority stated subsequently that the Commis-sion had presented a report which was being care-fully studied. The Commission had recommendedfar-reaching changes, including the setting up ofa district and village government board comprisingmembers of the Council of State and six Samoansnominated by the Fono of Faipule. This boardwould approve the establishment and supervise thework of local authorities. The Trusteeship Councilanticipated with interest the circulation of theCommission's report and of progress reports onthe steps taken by the Administering Authority onthe basis of that report.

The Department of Police and Prisons isdirectly under the control of the High Commis-sioner. At the end of March 1950, its staff con-sisted of twelve Europeans and 76 Samoans. Indiscussions with the Visiting Mission, the Samoanscomplained that considerable discrimination exist-ed in the salaries paid Samoan and Europeanmembers of the police force. The Mission wasinformed by the Administration that the salaryscales were considered unsatisfactory and wouldshortly be reviewed. The differences in the salariesof Samoans and Europeans were attributed, how-


ever, to the different work performed. Later, in itsobservations on the Mission's report, the Adminis-tering Authority stated that new salary scaleswhich had since been issued had removed theanomalies that existed under the old scale. TheSamoans also felt that the Police Departmentshould be under the control of the Council of Staterather than of the High Commissioner and theNew Zealand Government. The Mission and theAdministering Authority, however, considered thatcontrol of the Department should remain withthe High Commissioner.

As described in the Administering Authority'sannual report, the High Court of Western Samoaconsists of a chief judge and five commissionersappointed by the Minister of Island Territories tohold office during his pleasure, and fourteenSamoan district judges. In addition, three Samoanassociate judges participate in the work of theCourt. The Samoan judges are nominated by theFono of Faipule and appointed by the High Com-missioner for a term of three years. They are notrenominated by the Fono for a second consecutiveterm unless their service is of special importance.The Visiting Mission considered that the Samoanprinciple of sharing posts and not permittingincumbents to retain them for further terms wasdelaying the increased participation of the Samoansin judicial matters, a view endorsed by the Trust-eeship Council.

The Administering Authority reported thatassessors are employed by the High Court inserious criminal cases. When the defendant is aSamoan, one of the four assessors has in the pastusually been a Samoan. The Mission heard arequest by the Samoans that there should be twoSamoan and two European assessors, and expressedthe hope that their request would soon be granted.The Administering Authority stated subsequentlythat it had been aware of the desirability of sucha practice, which in fact had been instituted inApril 1950, before the Mission's visit.

A special judicial body, the Native Land andTitles Court, has jurisdiction in disputes overNative land and succession to Samoan titles. TheAdministering Authority reported that it was com-posed of the chief judge, assisted by two or threeEuropean assessors and two or three Samoan asso-ciate judges, the latter sitting in an advisorycapacity. The Samoans told the Mission that theywanted changes in the composition of this Court,including the replacement of the European asses-sors by nine Samoan assessors. The Mission did notagree with the changes proposed; it thought that

the proper course for the time being would be togrant the Samoan judges the same legal status asthe European assessors. The Administering Au-thority later informed the Trusteeship Councilthat legislation to that effect had now been passed,and the Council commended this action.

A Samoan is defined by municipal law as "aperson belonging to one or more of the Polynesianraces" and the law also classes as Samoan anyperson of more than three-quarters Polynesianblood, not specifically declared to possess someother status. Under prescribed conditions, indivi-duals may petition the High Court for a changeof status. In the past, the Administering Authorityindicated, the Court has declared 551 formerSamoans to be Europeans and 40 Europeans to beSamoans. The principal legal consequences of thisdifference in status are that a Samoan may not ingeneral be sued for trade debts, nor be a memberof any incorporated company or partnership with-out the sanction of the High Commissioner, norbe enrolled as a European elector; and that aEuropean may not share, as a right, in the use ofSamoan land or in the rents or profits derived fromit, nor acquire Samoan land by inheritance, noraccept a Samoan title without permission, nor inany case exercise the rights associated with titles.Most of the part-Samoans classed as Europeanslive in the Apia area, the Administering Authoritystated, where they have a leading role in trade andskilled occupations. Many also have plantations orsmall holdings, although they have no access toNative land except through a Samoan relative. Thefamilies of a large proportion of them have livedin the Territory for several generations. TheAdministering Authority stated that long-standingprejudices and animosities exist between theSamoans and the local Europeans of part-Samoanblood, even though there is also a very great dealof real friendliness and co-operation. This situa-tion, it believed, could be resolved only by agradual process, and no adequate solution couldever be imposed from outside. It described thelegislation defining the status of the inhabitantsas complex and in some respects unsatisfactory,and stated that the problem was now in the handsof the Legislative Assembly.

The Trusteeship Council, which in 1950 hadrecognized the importance of resolving this diffi-cult problem of differentiation in status betweenSamoans and Europeans, reaffirmed this view at itseighth session. It requested the Administering,Authority to give all possible assistance and en-couragement to the inhabitants, both within and


outside the Legislative Assembly, to the end thatan early solution might be agreed upon.


Western Samoa is predominantly an agriculturalcountry, the great majority of its people living incommunities engaged principally in growing food-stuffs and catching fish for their own subsistenceneeds. The Samoans also produce about 85 percent of the Territory's total output of copra, themost important export crop, a lesser proportionof the cocoa output, and most of the bananas, theonly other form of production for export.

Copra production and marketing is regulatedby the Copra Board, a statutory body. Except fora small proportion supplied to the New Zealandmarket, the Administering Authority reported, theentire production is now sold to the United King-dom Ministry of Food under contractual arrange-ments extending to 1957. During 1949 copraexports rose to 16,455 tons (valued at £787,274)29

from 14,178 tons (valued at £584,062) in 1948.The cocoa crop is handled through merchants. In1949 more than half was shipped to the UnitedStates and the next largest amount to the UnitedKingdom. A total of 2,894 tons was exportedduring 1949, as against 1,630 tons in 1948, but thevalue (£387,611 as against £369,492) was com-paratively lower as a result of a fall in the worldprice, which, toward the end of 1949, rose againto a high level. Bananas, which in the past wereexported under the control of the AdministeringAuthority and sold to the New Zealand MarketingDepartment, were purchased, from the beginningof 1951, f.o.b. Apia by an organization of fruitdistributors. A decline in exports from 99,507cases (£69,004) in 1948 to 87,121 cases (£64,-644) in 1949 was stated by the AdministeringAuthority to have been due to shipping difficultiesand to increased local consumption. In 1950, therewas an apparent decline in both the exports ofcopra (14,000 tons), due to shipping arrange-ments, and of cocoa (1,800 tons), as a result ofdamage done by heavy rains, but exports ofbananas increased to 97,000 cases.

Industrial development has been slight, theAdministering Authority indicated. The NewZealand Reparation Estates, a New Zealand Gov-ernment organization operating plantation andother lands taken from the Germans, has a sawmilland a desiccated-coconut factory, which it intendsto expand; a European operates another sawmill;a dried-banana enterprise started experimentallyby the Reparation Estates failed for want of a

regular market; and there is a small local craftsindustry in Apia. The Territory has no knownmineral resources. A recent expert survey revealedthat the forests of the Territory offered littleprospect of large-scale commercial development.This was also true of fishing, under the limitationsof the present sources of supply, the AdministeringAuthority stated. The measures taken by the Ad-ministering Authority to broaden the base of theTerritory's economy were described in its report.These included the re-establishment of an agri-cultural service, after a lapse of twenty years; theincreased planting of cash and food crops in areasmade accessible by the construction of new roads,of which 35 miles were built during 1949-50; thecompletion of a new hydro-electric power stationserving the Apia area; and preparations for anagricultural survey of the Territory in connexionwith the expanded Food and Agricultural Organ-ization world census of agriculture.

The Visiting Mission appraised the general eco-nomic situation of the Territory as very satisfact-ory. It found, superimposed on a very soundsubsistence economy, a steadily growing produc-tion of export crops which, although small innumber and extremely vulnerable in the past toprice fluctuations, did not seem to face any imme-diate prospect of a large fall in prices. The Missiondrew attention, however, to the fact that thepopulation was also increasing at a rapid rate, andconsidered that production must grow correspond-ingly if the standard of living were to be main-tained.

The Trusteeship Council congratulated the Ad-ministering Authority on the steps taken toimprove various aspects of the economic situationof the Territory.

Land held by Samoans under indigenous titlemay not be permanently alienated except to theCrown, but with the sanction of the Governmentareas may be leased. The Administering Authoritystated that alienation had taken place only forpublic purposes. According to the annual report,indigenous land holdings totalled about 581,370acres, Crown Lands (including the ReparationEstates) about 103,630 acres and European landheld from the Crown, about 40,000 acres, includ-ing 5,000 acres held by missions. It is estimatedthat more than half the land area is waste.

Most of the Samoan production of export cropsis carried on in the traditional manner by family

29 Figures in this section are given in New Zealandcurrency: £NZ100 = £ Sterling 100 = $US 280.


groups on small and often scattered plots of landand by methods of cultivation which the Admi-nistering Authority stated could be much im-proved. It noted, however, that an increasingnumber of Samoans were building up plantationscomparable in size and organization to those ofEuropeans; and a few Samoans had entered intopartnership with Europeans.

By far the most important individual plantationenterprise, and one of the largest taxpayers, is theabove-mentioned New Zealand Reparation Estates,now utilized for plantation, dairy farming, researchand other activities, under a management respon-sible to the New Zealand Government. Some ofthe Estates land has been disposed of to Samoans,particularly in the most densely settled regions ofthe Territory, in order to relieve population pres-sure. Much of the land, which in 1948 consistedof 75,360 acres, is considered by the AdministeringAuthority too poor for commercial development.Profits derived from the Estates are paid into theNew Zealand Consolidated Fund; but the Admin-istering Authority explained that, in practice,grants equivalent to the profits are made to theSamoan Government for social and economicdevelopment schemes. The Visiting Mission ob-served that a certain amount of friction appearedto exist between the management of the Estatesand some of the adjoining villages, which felt thatthe produce of these lands belonged to them; butit noted that the Samoan leaders neverthelessrecognized that the profits from the Estates werea welcome supplement to the revenues of WesternSamoa. The Mission, and later the TrusteeshipCouncil, commended the Administering Authorityfor using these profits exclusively for the benefitof Western Samoa and expressed the hope thatsurplus Estates land would continue to be madeavailable to villages in need of land. In this con-nexion, the Administering Authority informed theCouncil that it was considering the transfer ofsome 42,000 acres of surplus Estates land to theSamoan Government.

For the year ended 31 March 1950, the Terri-tory's revenue continued to exceed expenditure,the respective totals being £521,859 and £458,095.In addition, the Territory received grants from theAdministering Authority totalling £87,603 (theequivalent of the profits made on the ReparationEstates). These grants and the funds from theterritorial budget were spent almost entirely onpublic works (£152,939), health (£114,530),and education (£94,260). The accumulated sur-plus of public funds increased from over £300,000

in 1946 to £733,000 at the beginning of 1951 andwas mostly held in investments in New Zealand.

The most important source of public revenue inthe Territory consists of duties on imports andexports. Total trade in 1950 reached the recordlevel of about £2,500,000. For the year 1949-50import duties yielded £232,490 and export duties£83,057. The export duty on cocoa was later raisedfrom 3 to 10 per cent to bring it into line withthe charge on copra and other exports. Direct taxesincluded a salary tax, licences and fees, buildingtax, water rates, amusement tax and stamp duties.The principal direct tax is a tax on the grossselling price of goods, which produced £70,276during the year.

The Administering Authority had advised theTrusteeship Council in 1950 that it was making astudy of the question of replacing this tax by anincome tax, but the Mission was informed thatno policy of change in the tax structure had yetbeen formulated.

Both the Visiting Mission and the Administer-ing Authority emphasized the increasingly heavycost of health and educational services. The Mis-sion, as well as the Trusteeship Council, consideredthat the rapid increase in the population of theTerritory required a corresponding increase inpublic revenues, and, in this connexion, the Coun-cil stated that it was awaiting with interest theresults of the Administering Authority's studyconcerning taxation.

Since 1920, British goods imported into theTerritory have received preferential customs treat-ment, the customs duties being 11 per cent in theirfavour. A Select Committee, created by the Legisla-tive Assembly to investigate the matter, reported,the Administering Authority stated, that the pat-tern of the trade of Western Samoa was set bygeographical and transport considerations, and notby preferential rates of customs duty, and that theBritish preferential tariff had had hardly any effectin specifically directing Samoan trade to Britishcountries and away from other countries. TheCommittee nevertheless considered that the exist-ing customs schedule should be revised and con-solidated so as to abolish the so-called preferentialrate of duty and to provide one over-all rate forstandard basic commodity items, and a higherover-all rate for all other items. The LegislativeAssembly referred the report to the AdministeringAuthority for favourable consideration. The Coun-cil requested the Administering Authority to in-form it of the steps taken in the light of theCommittee's recommendations.


c. SOCIAL DEVELOPMENTThe Samoan social structure is based on broad

family groups, each headed by a matai chosen byall adult members of the family. The firm holdwhich tradition retains on the social structure andcustoms of the Samoans was emphasized by theAdministering Authority, and the Visiting Missionwas struck by the strength and durability of thesocial organization. While the Mission did notdoubt that some features of the Samoan way oflife offered an obstacle to progress, and that theAdministering Authority was aware of this fact,it felt that progress, when achieved, would besecurely based.

The Administering Authority stated that itsobjectives for social advancement were mainly inthe fields of public health, nutrition and improvedinfant care. Increases in trained staff, investigationsof dietary conditions, continued encouragement ofthe women's village committees, and improvededucational facilities were cited as its majormethods for attaining these ends. With respect tothe standard of living of the Samoans, the Admin-istering Authority adduced that the family systemprovided an almost complete form of socialsecurity, and there were in general no groupswithout adequate shelter and food. Referring toearlier requests by the Trusteeship Council for astandard of living survey, the Administering Au-thority stated that, in the absence of a full-scalemoney economy in the Territory, it was difficult tosee the purpose of compiling cost-of-livingindices. The Administering Authority maintaineda price control system to prevent fluctuations initems normally purchased by Samoans. At itseighth session, the Council asked the Administer-ing Authority to include in its next annual reportany information on the standard of living providedby the survey of agriculture, and to undertakesuch other studies as might be necessary for anappraisal of living standards.

The Administering Authority reported that allelements of the population enjoy human rightsand fundamental freedoms without discriminationand that the few instances of discrimination thatexisted resulted from the difference in status be-tween Samoans and Europeans. The AdministeringAuthority felt that these instances would requiresome time to be finally removed, and wouldapparently have to await the solution of otherproblems.

The Chinese Association of Samoa submitted tothe Visiting Mission a petition (T/Pet.1/3) seek-ing assistance for the Chinese residents in gaining

the approval of the local government in the fol-lowing matters: (1) that freedom to establishprivate business in Samoa be granted; (2) thatmarriages of Chinese to Samoans be legally recog-nized; (3) that Chinese who left Samoa inSeptember 1948 be permitted to return to Samoaif they wished to do so; (4) that certificates begranted for the establishment of educational insti-tutions where children of Chinese parentage maylearn the Chinese language and culture; and(5) that permission be given to the ChineseAssociation to register officially with the Govern-ment.

The Administering Authority informed the Mis-sion that the Chinese who had remained in Samoahad acquired full European status, and that con-sequently most of the restrictions mentioned intheir petition no longer applied. The Missionnoted: (1) that Chinese residents were eligible forbusiness licences; (2) that they might marrySamoans; (3) that the Samoans, although opposedto further immigration from any quarter, might bepersuaded to agree to the return of a few Chinese;(4) that no legal impediments to the establish-ment of Chinese schools existed; and (5) that,although no provision existed for the registrationof associations such as the Chinese Association,they were nevertheless free to function. The Ad-ministering Authority subsequently confirmedthese statements and said that there was no racialdiscrimination against the Chinese in the Terri-tory. In connexion with the request for schools,it stated that there were approximately 150 to 200children of school age who were at least half-Chinese.

In a resolution (312(VIII)) on the petition,the Trusteeship Council drew the attention of thepetitioners to these observations, which, it noted,appeared to answer the points raised. It invitedthe Administering Authority to ensure that allapplications for the return to Samoa of formerChinese residents be brought expeditiously beforethe Samoan Council of State; and it requested that,in future annual reports, additional informationbe given on the number, status and conditions ofchildren of Chinese parentage, as well as onChinese immigration and the position of Chineseinhabitants.

In describing the labour situation in the Terri-tory, the Administering Authority explained that,because of the small proportion of the populationdepending on wages, it considered unnecessary theestablishment of a labour department and theenactment of precise labour legislation. It con-


sidered, however, that as the economy becamemore advanced, there would be increasing needfor closer attention to the supervision of the labourforce. Wage rates and hours of casual labour, itreported, had been investigated by a special com-mission and adjustments had been made. TheAdministering Authority anticipated that an en-quiry would also be made into the problems ofestablishing a system of workers' compensation.The Visiting Mission reported that the Govern-ment, as the principal employer of casual labour,paid a minimum of 6s. 8d. a day in Apia to adultmale workers, but there was no legal minimumfor non-government workers, and plantationlabourers received as little as 3s. a day. The specialrepresentative later informed the Council that thebasic government rate had been increased to 7s.1d., with higher rates of 9s. 2d. for semi-skilledlabour, 14s. for good tradesmen, and 16s. to 30s.for foremen. He also cited figures for non-govern-ment workers, and stated that he did not think itentirely correct to say that the rate anywhere wasas low as 3s. a day.

Health conditions in the Territory were con-sidered by the Administering Authority as some-what better than in other tropical areas. It listedthe most prevalent diseases as hookworm, yawsand filariasis, and diseases resulting from faultysanitation, such as typhoid, dysentery and infantilediarrhoea. Tuberculosis is also a major problem.

Estimates of the increased staff desirable for thepublic health service were given in the annualreport, but the Administering Authority found itdifficult to see how the costs could be met. Itstated, however, that the acute shortage of Euro-pean medical officers was being overcome and thatan increasing number of Samoan students werebeing trained as medical practitioners at theCentral Medical School at Suva, in the Fiji Islands.It reported that the government hospital at Apia,which was being rebuilt, dealt with 1,966 in-patients during 1949-50 and the thirteen "districtdispensary hospitals" with 2,751. District hospitalfacilities were being expanded. In addition, twomobile clinics were in operation and a third wasbeing established. Most of the health services, theAdministering Authority stated, were providedfree of charge. A medical team organized by theSouth Pacific Commission visited the Territory in1950 to study certain aspects of tuberculosis; thisinvestigation, it was concluded by the TrusteeshipCouncil, indicated a determined effort to tacklehealth problems on a scientific basis. The VisitingMission noted that the Samoans were very eager

for an expansion of health services, particularlyin the case of the outlying villages. The Councilcommended the progress made in the preventiveand curative medical and health services. At thesame time, it urged the Administering Authorityto extend its efforts to improve these services bysuch means as continuing to make full use of thetraining facilities in Fiji and to collaborate withthe South Pacific Medical Service in recruiting thefully qualified practitioners needed.

d. EDUCATIONAL DEVELOPMENTEducation in Western Samoa is carried out

separately by the Administration and by religiousmissions, whose schools are not subject to govern-ment control. A considerable number attend bothkinds of schools. The Administering Authorityreported that out of 14,046 children enrolled inthe Administration schools in 1950 (as against13,236 in 1949), 12,912 were in the elementaryvillage schools; 904—including 500 in two schoolsfor children of European status—were in moreadvanced types of primary schools (one of whichwas a new "accelerate" school providing prelimin-ary academic training for the most promisingSamoan students); 35 were in the post-primaryschool; 119 were being trained as teachers; and 76were enrolled in adult evening classes. Governmentschools had 474 teachers (as against 301 in 1949),of whom 21 were certificated New Zealand andEuropean teachers, 22 uncertificated Europeanteachers, 304 Samoan teachers, and, as stated above,119 trainees. In addition, 123 students were en-rolled in the government teacher-training collegein 1950; the number was later increased to 140,the maximum the college could accommodate. TheAdministering Authority estimated that this shouldprovide an output of 40 to 50 trained teachers ayear, but it was aware that this was still notsufficient in view of the population increase of2,000 to 3,000 annually.

In the case of the mission schools, 23,050children were enrolled in 1950 (as against 21,417in 1949), the majority in pastors' and catechists'schools, described by the Administering Authorityas very elementary. Mission schools had 976 teach-ers, of whom 86 were Europeans, 369 pastorteachers, and 557 Samoans.

Apart from the Administration schools referredto above and four mission secondary schools, theTerritory depends for secondary and higher edu-cation on facilities in New Zealand and, in thecase of medical studies, in Fiji. In 1950, a total of58 students were on scholarships in New Zealand,


principally in secondary schools, and sixteen, tenof whom entered during 1950, were studying atthe Central Medical School in Fiji. Constructionof Samoa College, with an ultimate capacity of200 primary and 100 secondary students, Samoanand European, was expected to begin during 1951,the Administering Authority stated.

Radio is used in the Territory for both adulteducation and teaching in the schools. The Admin-istering Authority noted a very great improvementin the standard of work following a year's experi-ence in broadcasting four one-hour lessons eachweek and in the use of a monthly publication forteachers. The radio station operated by the Gov-ernment continued to increase its activities duringthe year, and it was reported that in 1950 therewere 248 government receiving-sets in the villagesand over 350 licensed privately-owned sets. TheAdministering Authority stated that enquirieswere being made with a view to obtaining cheapreceiving-sets which could be sold at a cost withinthe resources of most Samoan families.

The Visiting Mission concluded, in general, thatmuch remained to be done in the field of educa-tion, but that there was a great deal of creditableactivity. It found a widespread demand for educa-tion among the Samoans. It also found evidencethat plans for active expansion of the services werebeing implemented in many ways. It was inform-ed, however, that the expansion of the schoolpopulation was proceeding at such a rate that itwould be a considerable time before it would bepossible, in existing circumstances, to institutecompulsory primary education. The main need inthat field was the training of more Samoanteachers. The Mission considered that the religiousmissions continued to perform much valuable edu-cational work and it was informed that in spite ofthe absence of government financial assistance andcontrol, there was increased co-operation betweenthe missions and the Education Department, as hadearlier been recommended by the TrusteeshipCouncil. The Administering Authority, in itsobservations on the Mission's report, stated thata substantial increase in the revenues of the Terri-tory would be necessary before it could support acomplete system of free and compulsory education.

The Council commended the AdministeringAuthority for the progress made in education, inparticular the development of the Samoan Collegeproject and the opening of the new "accelerate"school. It drew attention, nevertheless, to the factthat the increasing population of the Territorywould require further extended efforts in that

field. The Council asked the Administering Au-thority to inform it of further steps taken forcloser co-ordination between government and mis-sion education, and as to the progress made in thefield of professional and technical educationdesigned to enable Samoans to participate increas-ingly in the administrative, judicial and technicalservices of the Territory.

4. Trust Territory of the Pacific Islands,Administered by the United States

This Territory consists of three groups ofMicronesian Islands: the Marshalls, Carolines andMarianas (except Guam). It contains 96 distinctisland units, with a combined land area of about687 square miles, spread over some 3 millionsquare miles. On 30 June 1950, according to theAdministering Authority's annual report,30 theindigenous population totalled 54,299, three fifthsof whom lived on the six principal island units—Saipan, the Palaus, Yap, Truk, Ponape and Majuro;the balance of the population was widely scattered.


As stated in the Administering Authority'sreport, all powers of government and jurisdic-tion and final administrative responsibility overthe Territory are vested in a High Commis-sioner, who is subject to direction by the Secretaryof the United States Navy. The detailed work ofadministration is carried out by five Civil Admin-istration Units with headquarters at Saipan(Northern Marianas), Koror (Western Carol-ines), Truk (Eastern Carolines), Ponape (EasternCarolines), and Majuro (Marshalls). The majorityof the higher administrative positions are held bynaval officers; indigenous personnel are employedas superintendents of schools, clerks of courts,medical assistants, nurses and in numerous otherpositions. The Visiting Mission sent to the Terri-tory in 1950 learned that the formal transfer ofadministrative responsibility from the Navy to theUnited States Department of the Interior wasscheduled to take place in July 1951. It pointedout, however, that a serious dislocation would

30

United States, Department of the Navy, Report onthe Administration of the Trust Territory of the PacificIslands for the period July 1, 1949, to June 30, 1950(U.S. Govt. Printing Ofc., Washington, 1950, OPNAVP22-100-J). For detailed discussions of this report inthe Trusteeship Council, see summary records of theCouncil's eighth session (30 January-16 March 1951);summaries of the observations of individual membersare included in the Trusteeship Council's report to theSecurity Council (S/2069).


occur if all naval facilities were abruptly with-drawn and hoped that at least some of the navalofficers who had given such excellent service tothe Territory might be persuaded to stay on underthe new regime.

During its eighth session, held in January-March 1951, the Trusteeship Council was informedby the Administering Authority that a civilianHigh Commissioner had been appointed in Jan-uary 1951 and the replacement of Navy staff bycivilian personnel had begun. As far as possible,Navy personnel were being retained in the Terri-tory until relieved by civilians, or until theythemselves were able to transfer to civilian status.These developments, including the retention ofsome of the experienced Navy staff, were notedwith satisfaction by the Council, which expressedthe hope that special attention would be given tothe training of the new civilian personnel.

The Administering Authority reported that, inOctober 1949, temporary headquarters of the TrustTerritory were moved from Guam to Pearl Harbor,in the Non-Self-Governing Territory of Hawaii;the Chief Justice and a number of departmentalheads and technical specialists remained in Guamuntil 1 July 1950, when field headquarters wereestablished at Truk. A request for the selection ofKoror as the permanent capital of the Trust Terri-tory was made by the Palau Congress and Councilin a petition (T/Pet.10/2) presented to the Mis-sion. The Visiting Mission was informed that nodecision had been taken concerning the establish-ment of headquarters within the Trust Territory,as had earlier been recommended by the Trustee-ship Council. It considered that Truk would be themost suitable site because it had the great advan-tage of a central location. Subsequently, theAdministering Authority informed the Councilthat a group of civilian officials representing thenew High Commissioner was making a study ofthe Territory with a view to recommending a sitefor the headquarters. Its establishment would, how-ever, have to await the construction of adequatefacilities. It added, with respect to the petition,that it was doubtful that the permanent head-quarters would be located at Koror (T/837).The results of the study were awaited with interestby the Trusteeship Council. In a resolution(314(VIII)) adopted on 13 March 1951, theCouncil referred the petitioners to the observationsof the Administering Authority and the Mission.

The greatest political development had takenplace at a local level, according to the Admin-istering Authority's report. Progress at the regional

or district level had been slower, the AdministeringAuthority stated, due mainly to linguistic andcultural differences and to lack of communications.These factors would also have to be overcomebefore a legislative body for the whole Territorycould be established.

Describing local government, the AdministeringAuthority reported that 116 municipalities hadbeen established. These, under Administrationguidance, are responsible for local law enforce-ment, particularly with regard to sanitation andeducation, for levying, collecting and expendinglocal taxes and for keeping financial records andrecords of vital statistics. In 68 municipalities, theexecutive head or magistrate is elected by thepeople, in twenty he is appointed by the Admin-istration after consultation with community chiefsand elders, and in 28, where the people prefer it,the hereditary chiefs have been recognized asmagistrates.

The Visiting Mission noted the differences inthe attitude of the indigenous inhabitants towardstheir traditional leaders. It felt that no single typeof local authority would be satisfactory and thatany attempt to impose one would cause passiveopposition and social disruption. In the meantime,by educational and other means, the AdministeringAuthority was both creating a desire and furnish-ing the means for future political progress. Thesuccess of the programme to date was the bestevidence of its soundness, the Mission stated. Inthis connexion, it referred to a petition (T/-Pet.10/7) from the chiefs of the Marshall Islandsrequesting that Marshallese customs should not bedestroyed and that municipal councils should notinterfere with the chiefs' rights. The Mission con-sidered this was a matter for the Marshallesethemselves to decide. While it realized that certaintraditional customs would disappear, the Missionhoped that people could preserve valuable featuresof their traditional culture and harmonize themwith modern institutions. Similar views wereexpressed by the Administering Authority, whichpointed out that an increasing number of muni-cipalities had begun to choose their local officialsthrough electoral procedures. Commenting on thepetition (T/837), it added that there had beena gradual evolution toward a more democraticform of indigenous government in the Marshallsand a consequent weakening of the power of thechiefs (the Iroij). In its resolution (319(VIII) of13 March 1951) on this petition, the TrusteeshipCouncil expressed the hope that, under theguidance of the Administering Authority, the peti-


tioners would meet the changed conditionsthrough recognition and adjustment on their part.

At the district level, the Administering Author-ity reported, there are a number of regional coun-cils or congresses, all of which have only advisorypowers. These would be given more authority, itwas stated, as the people mastered the techniquesand processes of legislation. The most advanced,the Palau Congress, had functioned since 4 July1947 and consisted of both hereditary and electiveelements. The first organized session of theMarshallese Congress, consisting of a house ofIroij and an elective House of Assembly, openedon 4 July 1950. In the more conservative com-munity of Yap, a Young Men's Council wasrecently established to supplement the existingCouncil of Chiefs. In the Ponape District it wasprobable that an elective congress would soon beestablished. In the Saipan District the people hadproposed a charter for a congress with full legisla-tive powers, but the Administering Authoritystated that, although the Saipanese had madeexcellent progress in political development, it didnot believe that they were ready to assume suchbroad powers of government. The AdministeringAuthority later informed the Council during itseighth session that a revised charter had been sub-mitted to the people by the High Commissionerand it was expected that the congress would beconvened within a short time. The AdministeringAuthority reported that a premature organizationin the Truk District had had to be discarded, andestablishment of a congress would have to bepostponed until community leaders had a broaderunderstanding of democratic governmental respon-sibilities. A civil administration conference heldin Guam in October 1949, primarily to discusseconomic matters, had given indigenous inhabi-tants from all districts the opportunity of discus-sing local attitudes and problems. Meetings of thisnature, it hoped, might soon develop in the peoplea sense of responsibility in matters of Territory-wide interest.

The Trusteeship Council congratulated theAdministering Authority on the political progressmade. It noted with approval that, in the estab-lishment of the municipalities, the hereditary indi-genous institutions were being modified to meetthe requirements of a more democratic form oforganization and that, according to the Adminis-tering Authority, these reforms were being carriedout as rapidly as the people of the Territory werewilling to accept them. The Council expressed thehope that the powers of the municipalities would

be progressively increased, that the younger gener-ation would be encouraged to participate in themand that the process of electing magistrates wouldbe continued. The Council also commended theAdministering Authority on the establishment ofthe Palau, Marshallese and other Congresses andthe manner in which they were operating.

The Administering Authority reported thatthere was still no organic legislation for the Terri-tory. It later informed the Council that a newdraft of organic legislation, which would legallydefine the national status of the indigenous inhabi-tants, who are now described unofficially as"Citizens of the Trust Territory", was under activereview by the executive departments of the Gov-ernment with a view to its early presentation tothe United States Congress. Noting this, the Trust-eeship Council expressed the hope that the nextannual report would include information on thematter.

The Visiting Mission referred to two petitionsconcerning the future status of the indigenousinhabitants. In one (T/Pet.10/5), the House ofCouncil and the House of Commissioners ofSaipan stated their desire that all of the NorthernMarianas be incorporated into the United Statesof America either as a Possession or as a Territory,preferably as a Territory, and that the inhabitantsattain American citizenship. They felt that theirclose cultural, geographic, economic and politicalties with the Guamanians, who were to be ac-corded American citizenship, justified this request,which they intended to make to the United StatesCongress. The people of Rota (Luta) in theNorthern Marianas (T/Pet.10/1) expressed ap-prehension that a Trust Territory flag might sup-plant the United States flag. The Mission men-tioned other statements which had been madealong these lines at various meetings it had heldin the Territory. It considered that this preferencefor a close association with the United States wasbased on a variety of motives: the people weregiven a far greater degree of freedom in conduct-ing their affairs than they had had under theJapanese; they had observed the display of materialabundance by both the military and civilian per-sonnel of the United States; gifts and assistancefrom the Administration far surpassed anything towhich they had been accustomed; they were beingencouraged to engage in economic activities; andthe opportunities for education had won theirhearty approval. In addition, the lack of continuitywhich they had experienced due to the repeatedchanges in administration during the past half


century had led to a desire for peace, security andpolitical stability, and they considered that theirchances of attaining these conditions depended toa considerable degree on the closeness of theirassociation with the United States.

With respect to the reference to Guam in thepetition from Saipan, the Administering Author-ity stated that there was no political associationbetween Guam and the Trust Territory. As to theother petition, the Administering Authority in-formed the Trusteeship Council that the civiladministration representative on Rota had beeninstructed to explain to the petitioners that a con-test for a flag design which had given rise to theirfears had been conducted only for the purpose offinding the flag symbols most meaningful to theinhabitants, and that this action in no way impliedthat the administration of the Territory by theUnited States would be terminated (T/837).

In a resolution (317(VIII)) adopted on 13March 1951, the Council noted the wishes ofthe people of the Northern Marianas. However,it considered that it was inappropriate to makeany recommendation as to the possibility of in-corporating the Trust Territory into the UnitedStates, or as to the acquisition of the nationalityand citizenship of the Administering Authorityby the inhabitants of the Territory as a whole.Nevertheless, it believed that the inhabitants wereentitled to have their national status clarified anddefined in such a way as to enjoy the fullestmeasure of protection by the Administering Au-thority and recommended that action be taken asquickly as possible to define their legal status ascitizens of the Trust Territory in conformity withthe provisions of article 11 of the TrusteeshipAgreement.

On the same day, the Council recommended,by resolution 313(VIII), that the AdministeringAuthority continue to take the necessary steps toexplain fully to the people of Rota the exact mean-ing and implications of the selection of a terri-torial flag and inform them that the creation ofsuch a flag would in no way hinder the flying ofthe United States' flag. The Council also recom-mended that the Administering Authority con-tinue to explain to the population the exact mean-ing and implications of the status of their Is-lands as a Trust Territory under the InternationalTrusteeship System.

b. ECONOMIC DEVELOPMENTThe natural resources of the Territory are

meagre and, in general, little more that a sub-sistence economy exists. Copra production, the

principal economic activity, accounts for about85 per cent of the indigenous export trade. TheAdministering Authority reported, however, thatin the Palau islands most of the coconut treeshad been destroyed by the rhinoceros beetle andin the Marianas by the Mariana coconut beetle.The Visiting Mission, commenting on a requestby the Palau Congress (T/Pet.10/2) for a pro-gramme to control and exterminate the rhinocerosbeetle, observed that although the ravages of thebeetle had not been completely checked, the InsectControl Committee for Micronesia had had en-couraging success in its efforts to bring this andother pests under control. The Administering Au-thority further explained (T/837) that since 1947biological controls had been applied and thatearly in 1950 a sanitation control programme hadalso been established; it added that the Palaupeople had co-operated in both programmes andshowed great interest in the results. After notingthese statements, the Trusteeship Council ex-pressed satisfaction with the work of the InsectControl Committee (resolution 314(VIII) of 13March).

Apart from copra, sources of money incomefor the indigenous inhabitants include: employ-ment by the Administration and at military instal-lations; handicrafts; the gathering of trochusshell; and, in the case of the Northern Marianas,the export of fish, fruit and vegetables to Guam.Angaur phosphates, mined by the Japanese Gov-ernment, represent the only export of consequenceother than copra.

Total exports during 1949-50 amounted to$1,644,180.94,31 comprising mainly copra ($796,-714.92), phosphate ($671,578.31), handicrafts($77,201.97) and trochus ($45,650.96). Duringthe same period, imports were estimated at$1,347,901.26. The major part of the import andexport trade is handled by the Government-ownedIsland Trading Company of Micronesia, whichbuys the produce of the indigenous inhabitantsand supplies trade goods on a wholesale basis.During the fiscal year 1950, the trade goods soldamounted to $1,152,027.51 and the cost price ofisland products purchased was $920,801.41; theCompany made a net profit of $89,611.96 onthese transactions. The Island Trading Companyis the sole copra exporter for the Territory, andpays into the Treasury of the Territory a 15 percent processing tax on all copra exported. A CopraStabilization Fund, set up by the Company to pro-tect the producers from price fluctuations, began

31 Throughout this section, $=U.S. dollars.


operating on 1 January 1950. The AdministeringAuthority reported that copra prices c.i.f. PacificCoast United States ranged, during 1949-50, from$140 to $210. It supplied a detailed account of thefinancial operations of the Island Trading Com-pany with respect to copra marketing. The aver-age price paid for copra during the year was $80per ton. Due to a rise in world prices, the Com-pany increased the price in February 1950 to $90per ton, and, according to information suppliedby the Administering Authority during the eighthsession of the Trusteeship Council, subsequent in-creases brought the price to $130, effective Feb-ruary 1951.

The Iroij of the Marshall Islands petitioned(T/Pet.10/7) for an increase in the price paidfor copra. Elsewhere, also, the Mission heardcomplaints that the price paid for copra was toolow and that a charge was made for copra bags.It believed that many of these complaints weredue to an understandable failure to appreciatetrue economic costs. The Mission was convincedthat the price actually paid by the Island TradingCompany was based on the world market price—less (1) costs actually incurred in handling thecopra and (2) the 15 per cent ad valorem taxpaid to the Treasury of the Territory. However,since coconut oil from the Territory, or copraproduced there, was subject to a tax of 2 centsper pound when sold in the United States, andTrust Territory copra accordingly must find mar-kets abroad or suffer a reduction in price in theUnited States, the Mission suggested that the Trus-teeship Council should invite the AdministeringAuthority to consider revoking this tax and toreview from time to time the price paid to thegrowers for copra, to see that it bore a properrelation to the world price. The Mission consid-ered that advantage should be taken of any fu-ture rise in the world price of copra to abolishthe charge for copra bags and institute a net price,thus ending a source of misunderstanding. In itsresolution (319(VIII) of 13 March 1951) on thepetition, the Council informed the Iroij that itexamined the question of the copra price eachyear.

The phosphate deposits on Angaur Island inthe Palaus continued to be worked by the Japa-nese Government under the supervision of theSupreme Commander for Allied Powers (SCAP).During 1949-50, a total of 405 labourers, mostlyJapanese, mined 134,741 long tons of phosphate,all of which was exported to Japan. The Missionwas informed that only 600,000 tons of phosphate

still remained to be worked. As a result of miningagreements concluded on 21 December 1949 and16 July 1950 between a representative of SCAP,a representative of the High Commissioner andrepresentatives of the Angaurese, the Trust Ter-ritory is to receive a processing tax of 15 percent ad valorem, and a severance fee of $2.00 aton is to be paid into a trust fund for the per-manent inhabitants of Angaur. Payments fromthis fund are to be made at the rate of $15,000per year: two thirds to the clans owning the landto be mined, two fifteenths to the municipality ofAngaur and three fifteenths to clans possessing noland to be mined. The new agreements also pro-vide for supervision by hydrological experts andfor the filling and reclamation of worked-out land.In the past, the Territory received only a royaltyof 25 cents per ton on the phosphates. The Mis-sion considered the new agreements very com-mendable and hoped that there would be no He-lay in commencing payments to the Angaurese.It also noted that some Angaurese wanted to workin the phosphate industry and considered thatthey should have employment priority and shouldreplace Japanese unskilled labourers as the con-tracts of these labourers expired.

The Administering Authority stated that theeconomic situation was improving slowly. How-ever, it pointed out, the creation of a self-sustain-ing economy was still distant, and, even in themost favourable circumstances, the Territorycould never be rich. The Administering Authoritystated that, with the enthusiastic co-operation ofthe inhabitants, it was trying to diversify the agri-cultural, industrial and commercial life of thearea. Scientific studies into current economic prob-lems were being carried out. Assistance was givento improve agriculture by making specialists avail-able and by supplying seeds and fertilizers. Lightindustries, of which the making of handicraftwas the most important, were being developed.Boatbuilding had assumed an important positionin the Marshall Islands, where the people wereconverting Navy surplus craft into sailing vesselsfor use in inter-island shipping; since January1950, 89 ex-Navy hulls had been distributedthroughout the Territory for this purpose. InMarch 1950, the Island Trading Company hadestablished from its accumulated profits an Eco-nomic Development Fund of $100,000, and aidfrom this source had been authorized for boat-building, commerical fishing, soap manufacturingand the production of cocoa, papain and ramie.The Administering Authority further informed


the Trusteeship Council, during its eighth session,that the High Commissioner had employed a qual-ified economist, who was engaged in studying thestandards of living, wage levels, an equitable tax-ation system and related economic subjects.

The Visiting Mission reported that the peopleof the Territory were conscious of a lack of asufficient money income. Everywhere it was askedto see what could be done to remedy this. Thissituation, it stated, was most marked in the PalauIslands; while at Koror, it received a petition(T/Pet.10/2) from the Palau Congress, whichrequested that technical experts should be sentin managing and advisory capacities to improveagriculture, fishing and local industries. In anotherpetition (T/Pet.10/6), the High Council of Sai-pan emphasized the economic difficulties experi-enced by the Saipanese as a result of the closingof military installations; it suggested trade, if nec-essary on a barter basis, between Saipan andJapan. The Mission suggested that the Adminis-tering Authority should give this matter con-sideration; the latter stated that extensive tradewas being carried out with Japan by the IslandTrading Company and that a number of measureswere being taken to resolve the economic difficul-ties of the Saipanese. The Mission was assured bythe Administering Authority that every effort wasbeing made throughout the Territory to developthe existing resources and to find new resourcesto exploit. The Mission considered that small-scaleindigenous enterprises would undoubtedly be aidedby the financial support made available by theIsland Trading Company, but it could not es-cape the impression that, with the exception ofdeep sea fisheries, there were no important fieldsfor investment within the Territory.

The development of commercial fishing, a po-tentially important industry, the AdministeringAuthority stated, was one of its long-term object-ives and would require large capital investmentsand extensive research and the training of skilledfishermen and operators. A major retarding factor,it stated, had been the lack of interest shown bythe indigenous inhabitants. The AdministeringAuthority had provided vessels and equipmentwhere needed for subsistence fishing and alsowhere the inhabitants indicated a desire to fishcommercially, but, with the exception of the smallSaipan Fishing Association, there was no com-mercial fishing in the Territory. The Saipanesewere being aided in setting up ice-making andrefrigeration facilities to preserve their catch fortransport to Guam.

The Mission reported that nearly everywhere itwent the people asked for assistance in developinga deep-sea fishing industry. It received the impres-sion that the exclusion of the Japanese and Ok-inawans from fishing in the waters of the Ter-ritory was effectively preventing the developmentof deep-sea fishing there, since Japan and Okin-awa appeared to be the only sources able to pro-vide the skilled fishermen; they were also the onlyimmediate prospective markets. While the Mis-sion was aware of the reasons which had promptedthe Administering Authority to exclude the Japa-nese from fishing, nevertheless, in view of theimportance of the industry to the Territory's fu-ture development, it suggested that the Adminis-tering Authority should consider lifting the ban, ifpolitically practicable, on their participation infishing, on such conditions as would ensure anadequate participation by the indigenous inhabi-tants in the industry. It realized, however, thatthe Administering Authority would have to policethe industry carefully to see that indigenous in-terests were well protected.

The Trusteeship Council expressed its satisfac-tion with the general economic progress made inthe Territory during 1949-50. It noted the Mis-sion's opinion that, with the exception of thedeep-sea fisheries, there are no important newfields for investment within the Territory. It ex-pressed approval of the appointment of an eco-nomic specialist who was making a survey of theTerritory, and noted the Administering Authori-ty's statement that economic development was be-ing fostered in many ways: through the increasein copra production and the development of otheragricultural products for export; through the en-couragement and guidance of the inhabitants inestablishing retail and wholesale companies andlight industries; and through the provision ofsmall boats and transportation facilities. Thesemeasures were welcomed by the Council as anindication that the long-range economic inde-pendence of the Territory was being taken intoaccount. It requested the Administering Authorityto continue its efforts to diversify the economyand to establish and develop industries and prod-ucts for export. The Council also recommendedthat the Administering Authority study means ofencouraging commercial fishing by the inhabi-tants, facilitate their training in that industryand help them seek satisfactory markets; it sug-gested that the experts might be engaged to teachand aid the people in establishing an indigenouscommercial fishing enterprise and in developing


further the copra industry. By resolutions 314 and318(VIII), adopted on 13 March 1951, the Coun-cil drew these recommendations to the attentionof the Palau Congress and the High Council ofSaipan.

The Administering Authority reported that theamount made available for spending during thefiscal years 1949 and 1950 totalled $1,400,000each year. Of the total, $1,125,000 in 1949 and$795,000 in 1950 represented funds appropriatedby the United States Congress and the balancerepresented current and past territorial revenueapproved for spending by Congress. The Territoryreceived even greater, but invisible, financial bene-fits, in the form of transportation and other facili-ties provided by the United States Navy. The larg-est budgetary allocations were for education andmedical and health programmes. The processingtax on copra and internal revenue taxes, it stated,are the principal territorial taxes. A head tax of$2 a year, payable by each adult male, is collectedand spent by the municipalities. The Administer-ing Authority informed the Trusteeship Council,during its eighth session, that it was still study-ing the question of replacing the head tax by amore progressive system of taxation, as had beenrecommended by the Trusteeship Council in 1949and 1950, but did not think this tax should beabolished as yet. Public interest required that itbe continued unless and until an adequate substi-tute had been developed, the Administering Au-thority stated. The Visiting Mission consideredthat there appeared little possibility of substan-tially increasing the Territory's revenue unlessthere were also substantial increases in the percapita income, and that any more equitable taxa-tion system which was devised would thereforestill be inadequate unless the general economy ofthe Territory were improved.

The Visiting Mission reported that, as reflectedin the petitions from the Palau Congress (T/-Pet.10/2) and the High Council of Saipan (T/-

th e

indigenous inhabitants were

greatlyconcerned about the redemption of the Japanesebonds and postal savings they hold and of theyen currency they had at the time of the Terri-tory's occupation by American armed forces. Itexplained that, during the occupation, the inhabi-tants were ordered to turn over to the Americanmilitary authorities all Japanese currency they had,and each individual was reimbursed at the rate ofone dollar for twenty yen, to a maximum of 1,000yen. Receipts were given for sums received in ex-cess of this maximum with, the people claim, a

promise that these would be redeemed in dollarsat a later time. The Mission was informed by theAdministration officials that if such a promisehad been made it came from unauthorized per-sons, as the United States Government had neverundertaken to redeem Japanese currency and thedollars given the indigenous inhabitants at thattime were a rehabilitation measure to provide fortheir urgent needs. The Administering Authorityconsidered the Japanese bonds and postal savingsa responsibility of the Japanese Government. TheMission considered it unfortunate that apparentlylittle, if any, effort had been made to make itclear to the people that the dollars given themwhen they turned in their Japanese currency wasoutright assistance similar to food or medicine. Itstated that the people's impression had becometoo deep-rooted by this time to be wiped out byan explanation correcting the original misunder-standing and felt that, although the Administer-ing Authority had no legal obligation to redeemJapanese currency, it would be well advised toreconsider the whole question in a sympatheticspirit. The inhabitants' claims for redemption ofJapanese bonds and savings were reasonable andvalid, in the Mission's opinion; it stated that theAdministering Authority would no doubt presssuch claims and insist that they be taken fullyinto account in the peace treaty with Japan. Itconsidered that the inhabitants should be informedof what was being done toward reimbursing themfor their losses in bonds and postal savings.

The Trusteeship Council expressed the hopethat the Administering Authority would find anequitable solution to the problem as soon as pos-sible and, in its resolutions 314(VIII) and 318(VIII) of 13 March on the petitions, the Councilreiterated this statement.

According to the Administering Authority's an-nual report, the indigenous inhabitants hold about240 square miles of land and the AdministeringAuthority about 450 square miles, including pub-lic domain and land under cognizance of the AlienProperty Custodian. The exact extent of this landdepends upon the outcome of numerous pendingclaims by private individuals and groups. The pol-icy of the Administering Authority, it was stated,is to treat as public domain land formerly ownedby the Japanese, reimbursing the former ownersif their lands were taken without compensation,and making an equitable adjustment in caseswhere partial compensation was paid. Where pri-vate land was required by the Administering Au-thority for military purposes, the owners would

Pet.10/6),


be compensated for the use of the land. Exchangeof private land for public domain would be madewhere feasible. Many owners whose land was heldby the Government or had been taken over formilitary installations had been given permits tofarm government land; they were not requiredto pay for the use of such land and any rentalwhich was decided upon would be charged againstthe compensation granted for their own land. TheAdministering Authority stated that it had anactive programme for the reconstruction of landrecords and land boundaries, and the homesteadingof public domain lands. It expected that an in-creasing number of land title cases would be set-tled within the next year, but that the generalproblem would continue for several years.

The settlement of their land problems was oneof the most frequent requests made by the peopleof the Territory to the Visiting Mission. This ap-peared in a number of petitions (T/Pet.10/2, 6& 7), where formal requests were made for thesettlement of land claims, including war damageto land, re-establishment of boundaries, compen-sation for military occupation of land, and landsforcibly taken through sale or seizure by the Ger-man and Japanese Governments. Dissatisfactionwas registered with the permits to farm govern-ment land given to persons whose land had beenrendered unfit for farming by the building of mili-tary installations. Such permits were revocable atany time, and the inhabitants wanted legal own-ership in order to plant trees and establish per-manent farms. It was also hoped that the home-stead plan proposed by the Civil Administrationto provide land for landless residents would beapproved and put into effect. The Mission, con-sidering the question of land claims importantand noting that five years had elapsed since theconclusion of hostilities, felt that such claimsshould be settled soon, and that the Land TitlesCourt should be expanded if this Court, as cur-rently constituted, were considered inadequate todeal expeditiously with the task. It recommendedthat the Trusteeship Council request the Admin-istering Authority to keep it informed of all meas-ures taken to settle the land problems of the in-digenous inhabitants and to ensure such an im-provement in the system of land tenure as wouldgive them a feeling of complete security.

The Trusteeship Council noted that land titleofficers had been appointed to expedite the settle-ment of claims to land alleged to have been ac-quired by the various administrations of the Ter-ritory without just compensation; it urged the

Administering Authority to settle these landclaims as quickly as possible. By resolutions 314(VIII), 318(VIII) and 319(VIII), adopted on13 March 1951, the Council called its recommen-dation to the attention of the petitioners.

The Mission referred to the situation of thepeople who had been moved from Bikini andresettled on the island of Kili. It was told by theMagistrate of Kili that the current economy ofthe people, which differed from their traditionalone at Bikini, was insufficient to enable the peo-ple to pay municipal taxes, and such things asmedical fees and teachers' salaries, and that theyneeded more help in order to do so. The Missionconsidered that, since these people had encoun-tered hardships as a direct result of their willing-ness to co-operate with the Administering Au-thority and relinquish their home atol, they mer-ited the special attention of the Administrationand deserved the assistance they were receiving,as well as any other assistance necessary to enablethem to adjust to their new conditions. The Ad-ministering Authority, after investigations, con-sidered that the present indications of restlessnessamong the people stemmed from their wish tobreak away from established Marshallese customsof land ownership and use. It felt that develop-ments of this nature, which arose from within thesocial organization of the people, should be recon-ciled by the indigenous groups concerned, withthe aid of the Administration, and stated that itwould watch carefully the development of thesituation.


The Administering Authority stated that theimprovement of social conditions in the Territorywas based on the continually expanding pro-grammes for the development of self-government,economic self-sufficiency, medical care and edu-cation. It considered that these programmes, to-gether with the indigenous social systems, pro-vided the necessary guarantees for social welfareand social security. Basic social customs and con-ditions were continually reviewed by anthropolo-gists who advise the district officials responsiblefor the social welfare of the people.

Most of the people, it was stated, are engagedin farming and fishing, and scarcely 2,000 areemployed for wages. According to the Administer-ing Authority's report, indigenous inhabitants donot leave the Territory in search of employment.


apart from the movement of small groups toGuam. The people of Palau requested in theirpetition (T/Pet.10/2) that unemployed inhab-itants of the Trust Territory be authorized em-ployment under contract by the military authori-ties in Guam and Okinawa, where a shortage oflabourers existed. The Administering Authority,in its observations (T/837) on the petition, statedthat the matter of finding employment outsidethe Territory for Palauans and for others was be-ing explored. The Trusteeship Council recom-mended (resolution 314(VIII)) of 13 March1951 that the Administering Authority explorefurther the question of finding employment forPalauans, especially in Guam.

The Administering Authority pointed out thateducation and health standards were better thanbefore the war. While the standard of living wasstill below pre-war levels in communities whichwere near Japanese centres and directly dependentupon a money economy, it was at least up to pre-war levels in outlying islands. The AdministeringAuthority felt that the greater opportunity forwage employment and sale of local products un-der the Japanese economy should be weighedagainst the freedom now enjoyed by the inhabi-tants and the fact that large numbers of non-indigenous persons no longer used the majorportion of the local resources. Housing conditionscontinued to improve. In the more populous areas,thatch houses were gradually being replaced bythose of frame and corrugated iron, but progresshad been hampered by lack of material. A modelvillage of homes and public buildings was underconstruction on Ebeye Island for the Marshallesewho work on Kwajalein Island.

The Mission noted the beneficial changes inliving standards of the people resulting from theoccupation of the islands by the American armedforces during and after the war. These changeswere particularly noticeable in employment, re-habilitation and welfare programmes, barrackhousing, road building and medical attention.From their contact with the Americans, it ob-served, the indigenous people had acquired newdesires and expectations of a higher standard ofliving than the one to which they had been ac-customed.

The Mission referred to a request made by thePalau people (T/Pet.10/2) that Japanese na-tionals married to indigenous inhabitants be per-mitted to return to the Territory provided theyrenounced their Japanese citizenship. The Admin-istering Authority stated (T/837) that its present

policy did not permit the entry of Japanese na-tionals into the Territory as residents, but thatevery opportunity had been extended for thefamilies to rejoin the repatriated Japanese inJapan. Accepting a suggestion by the Mission, theTrusteeship Council invited the AdministeringAuthority to report on the return of Japanese na-tionals to their families in the Territory, includ-ing the number of cases involved.

The Administering Authority reported that itslong-term objectives in public health—to controlpreventable diseases and to raise health standards—were approaching realization more rapidly thanit had originally believed possible. During 1949-50, 26 islands were surveyed and 11,091 physicalexaminations were given by the staff of the med-ical survey ship, U.S.S. Whidbey. By 30 June1950, about 23,000 persons had been processed;the health survey of the Northern Marianas,Western Carolines and part of the Marshalls hadbeen completed, and the survey of the remainingarea was to be completed in 1951. Other healthfacilities included five unit dispensaries and threesub-dispensaries with facilities for in-patients, 94sub-dispensaries for out-patients, and a recentlyestablished leprosarium at Tinian with facilities for100 lepers. Special or difficult cases were treatedat the Guam Memorial Hospital. During 1949-50, non-indigenous medical personnel totalled 52,including fourteen physicians and seven den-tists; in addition, 259 residents of Micronesiawere employed by the Medical Department, elevenas medical and dental practitioners and medicalassistants. Others were being trained at Guam,where there were 38 students in the School ofMedical Assistants, 25 in the School of DentalAssistants, and 43 in the School of Nursing; theAdministering Authority informed the TrusteeshipCouncil that the first two schools had recentlybeen closed and the students transferred to theCentral Medical School at Suva, in the Fiji Islands.

A survey of nutritional standards in the Terri-tory, the Administering Authority reported, hadbeen combined with the medical survey carriedout by the staff of U.S.S. Whidbey; of the 11,091persons examined during 1949-50, only 140 werefound to be suffering from malnutrition. TheTrusteeship Council was later informed, at itseighth session, that a food and nutrition expertwas investigating the dietary habits and nutri-tional status of the inhabitants on two sampleislands, one a high volcanic island, the other alow coral island; this research was expected toprovide information necessary to develop pro-


grammes for improving nutrition, especiallyamong children.

The Visiting Mission was especially impressedby the attention devoted to public health in theTerritory and the excellent progress made. Thisprogress, it felt, was due to the fact that the Ad-ministering Authority did not hesitate to spendlarge sums ($385,417.90 in 1949 and $295,811.46in 1950) to provide medical facilities which ren-dered the most modern diagnostic and therapeuticmedical services. It concluded that the healthprogramme had apparently won the confidenceand approval of the people, for it received norequests on the subject except at Truk. Here, al-though gratitude was expressed for the dispensaryand general medical services, a request was madefor a separate hospital for tuberculosis. The Mis-sion pointed out that U.S.S. Whidbey had not yetmade a survey of the incidence of tuberculosis onTruk; it felt, however, that the Public HealthService was the best judge of what should bedone and of where further medical facilitiesshould be established. It considered that the ex-cellent work of the Public Health Service meritedapproval.

The Visiting Mission received a petition (T/-Pet.10/3) submitted on behalf of 264 womenof Palau, asking that the manufacture of alcoholicbeverages be forbidden in Palau. The Mission wasinformed by the Administering Authority that themanufacture of an alcoholic beverage named sakiwas permitted for home consumption and forcustomary feasts, but that manufacture for sale wasprohibited. It also learned that each municipalityhad the power to prohibit the manufacture ofsaki under any circumstances. In its observations(T/837) on the petition, the Administering Au-thority added that there was a District Ordercontrolling excessive drinking and that the prob-lem was not considered more serious in Palauthan elsewhere in the Territory. By resolution315(VIII), adopted on 13 March 1951, the Trus-teeship Council called the petitioners' attention tothese observations, and in particular to the factthat it is within the jurisdiction of each munici-pality of Palau to forbid the manufacture of al-coholic beverages, and that the women of Palauare in a position to have their views made knownin the municipalities.

d. EDUCATIONAL DEVELOPMENTThe Administering Authority stated that the

objective of its educational policy was to givethe inhabitants an appreciation of the value of

programmes being carried out for the political,judicial, social and economic development of theTerritory, the skill to participate in these pro-grammes, and the knowledge necessary to assumefull direction of them at some future time. Asstated in the report of the Administering Author-ity, the Department of Education, located at Ha-waii, has general supervision over the administra-tion of the schools. It is assisted by the AdvisoryCommittee on Education for Guam and the TrustTerritory, which makes recommendations con-cerning the professional and technical phases ofpublic education and educational administration,reviews the progress of the programme, andscreens candidates for teaching positions. The ex-penditure for public education for the fiscal year1950 amounted to $376,520 or 29 per cent ofthe total expenditures, as compared with $338,-048.49 in 1949 and $168,177 in 1948. In addition,considerable amounts of surplus war materialswere still being used. All facilities and materialsof the public schools are free to the people of theTerritory, the Administering Authority stated.

During 1949-50, more than 90 per cent ofthe children of school age were enrolled in schoolsand about 95 per cent of these attended. Ele-mentary schools, staffed by indigenous teachers,were in operation in every major population cen-tre or village throughout the Territory. In 1949-50, there were 130 public elementary schools, witha total of 221 teachers and 6,715 pupils, andfourteen mission elementary schools, with 63teachers and 1,439 pupils. A total of 626 stu-dents, about 565 of whom had been provided withscholarships, attended the six intermediate schools,staffed by 22 indigenous and 24 American teach-ers. Transportation to these schools, which arelocated at the headquarters of each Civil Admin-istrative District and at Yap, is furnished by theAdministering Authority at the beginning andend of each term.

The intermediate schools provide either termi-nal education in subjects considered to be espe-cially adapted to the needs of the District, includ-ing teacher-training, or pre-professional educationfor students desiring higher education. In additionto the teacher-training courses offered in theseschools, the Pacific Islands Teacher TrainingSchool at Truk conducts a two-and-a-half-yearcourse; 69 students from the Territory were en-rolled at this school during 1949-50 and, in June1950, 83 teachers reported for refresher trainingin the summer session. During the 1949 summersession, the Micronesian Educational Association:


was formed to further the professional standing ofteachers and to supplement the educational pro-gramme; more than half of the educational per-sonnel became members. In 1949-50, 29 studentswere enrolled in the three-year course offered bythe School of Communications, established at Trukin 1949, to train indigenous radio operators. Eli-gible students are given assistance to attend highereducational institutions outside the Trust Terri-tory.

The few libraries in the Territory are locatedat the intermediate schools and the Teacher Train-ing School. These, the Administering Authoritystated, are being expanded as funds become avail-able and as the educational advancement of thepeople enables them to use such facilities; a Sup-ervisor of Libraries had recently been appointedto organize and develop the educational librarysystem. Radio broadcasting had been developedat Truk, Kwajalein and Saipan, it was reported,but the Administering Authority reported that theuse of radio had been limited by the lack of avail-able electric power and the very short life andhigh cost of dry-cell batteries in wet climates; itinformed the Council that it would consider fur-ther using radio as a medium of instruction whenthe problem of the diversification of language hadbeen resolved and English was more generallyused throughout the area.

Stating that it encouraged the preservation ofindigenous music, dances, folklore, arts and handi-craft, the Administering Authority reported thatin 1949-50 a number of indigenous persons fromall areas co-operated with the Department of Ed-ucation in furnishing material for two volumesof Micronesian legends.

The Visiting Mission was favourably impressedwith the objectives of the Administration in edu-cation and the progress achieved. It called atten-tion to various obstacles in the way of the edu-cational programme. The need for teaching auniversal language, as well as the numerous Mi-cronesian languages, required linguistic research,the translation of textbooks and the continuousdevelopment of teaching material, already under-taken by the Administration, the Mission stated.Although teaching methods were being improvedand expanded, the present language barrier wouldcontinue for some time. The Mission also notedthe insufficient number of adequately trainedteachers and the generally sparse and scatteredpopulation which made difficult the maintenanceof even an elementary school system with variousgrades. Each municipality was responsible for pay-

ing the salaries of elementary school teachers,but the Mission observed that many local com-munities found this difficult and their support ofintermediate and higher schools would obviouslybe impractical. It considered that the Administra-tion had no alternative but to continue furnishingfinancial assistance.

In this connexion, the Mission noted the con-cern of the Saipanese, as reflected in the petition(T/Pet.10/6) from the High Council of Saipan,that they would no longer be able to pay thesalaries of their elementary school teachers whentheir source of money income was cut off or re-duced to a minimum by the departure of militarypersonnel. The Mission was told that the lowestmonthly salary for teachers in Saipan was $75,which was above the income of inhabitants ofcorresponding status, and that a reduction to $50was contemplated. However, it noted that theAdministering Authority was fully aware of thedesirability of maintaining the present educationalfacilities and of the problems involved.

The High Council had also expressed the hopethat technical training would be continued andexpanded to include more training in agriculturalpractices and other necessary trades, such as sea-manship, navigation and engineering, which itbelieved would help the people to build a soundeconomy and to fulfil the responsibilities of self-government. The Mission, referring to the manyother requests made for particular types of occu-pational training, agreed that this type of trainingshould have a prominent place in any additionaleducational facilities which might be provided.

In its resolution (318(VIII) of 13 March1951) on the petition, the Trusteeship Councilexpressed its sympathy with the requests made bythe High Council. It recommended that the Ad-ministering Authority continue its policy of aidingmunicipalities, where necessary, in meeting thecosts of elementary education and keep the situa-tion in Saipan under careful review in accord-ance with this policy. It further recommendedthat increasing emphasis be given to vocationaltraining to the extent required by the needs ofthe Territory.

The people of Palau also asked (T/Pet.10/2)that facilities of high school or college standardsbe provided for training in such subjects as gov-ernment, economics and law, and that sufficientfunds be allocated for this purpose to ensurecompetent graduates. They pointed out that thepresent scope of education was limited to the


training of medical orderlies, nurses, radio oper-ators and teachers. As recommended by theMission, the Trusteeship Council noted the pe-titioners' desire for higher education, and theAdministering Authority's assurance that it wastaking steps to provide the Territory with educa-tional facilities corresponding to its present andfuture possibilities (resolution 314(VIII) of 13March 1951).

The progress made during 1949-50 in thefield of education as a whole was found com-mendable by the Council. In particular, it referredto the expansion of the Teacher Training Schoolat Truk, which it hoped would soon provide suf-ficient qualified teachers to overcome the existingdeficiency. It noted that the libraries in the Terri-tory were being augmented and expanded and thata Supervisor of Libraries had been appointed.

D. CONDITIONS IN TRUST TERRITORIES IN EAST AFRICA

Annual reports submitted by the AdministeringAuthorities on the administration of Ruanda-Urundi and Tanganyika during the two years 1949and 1950, and of the Trust Territory of Somali-land from April to the end of December 1950were examined by the Trusteeship Council at itsninth session, held from 5 June-30 July 1951.32

The report of the United Nations Advisory Coun-cil for Somaliland covering its activities from 1April 1950-31 March 1951 (T/923) was takeninto account by the Council in its examination ofthe annual report on that Territory. Observationsof the United Nations Educational, Scientific andCultural Organization (UNESCO) (T/903) onthe 1949 reports on Ruanda-Urundi and Tanga-nyika were considered by the Council in connexionwith its examination of educational conditions inthese Territories.

In 1951, the Council also examined, during itseighth and ninth sessions, six petitions concerningTanganyika and 32 concerning Somaliland.33

The Council completed the arrangements forits second Visiting Mission to Trust Territoriesin East Africa. On 1 February 1951, it decidedthat the Visiting Mission should consist of personsnominated by the Dominican Republic, NewZealand, Thailand and the United States, and thatit should proceed to Ruanda-Urundi about 15August, to Tanganyika about 15 September andto Somaliland under Italian administration inOctober 1951.

On 16 March and 5 June 1951, the Council,approving the nominations of the above Govern-ments, appointed Enrique de Marchena (Domini-can Republic) as chairman of the Mission andMom Chao Dilokrit Kridakon (Thailand), G. R.Laking (New Zealand) and William I. Cargo(United States) as members of the Mission.

By resolution 344(IX), adopted on 5 July by11 votes to none, with 1 abstention, the Council

decided that the Mission should leave before theend of the month and that it should spend suffi-cient time in the three Trust Territories to beable adequately to fulfil its task. It further directedthe Mission: (1) to investigate and to report asfully as possible on the steps taken in the Terri-tories towards the realization of the objectives setforth in Article 76b of the Charter34; (2) to giveattention, as might be appropriate in the light ofCouncil and General Assembly discussions andresolutions, to issues raised in connexion withthe annual reports on the administration of thethree Territories concerned, in petitions receivedby the Council relating to the Territories and inthe reports of the first periodic Visiting Missionon Ruanda-Urundi and Tanganyika and the ob-servations of the Administering Authorities onthese reports; (3) to accept petitions and to in-vestigate on the spot, after consultation with thelocal representative of the Administering Author-ity concerned, such of these petitions which, in itsopinion, warranted special investigation; (4) toexamine, in consultation with the AdministeringAuthorities, the measures taken and to be takenin respect of the provision of information aboutthe United Nations to the peoples of the TrustTerritories under resolution 36(III) of 8 July1948,35 and to undertake the duties enumeratedin resolution 311 (VIII) of 7 February 1951 onthe same question.36 Finally, the Council requestedthe Mission to report by 15 November 1951 onits findings, with such observations, conclusionsand recommendations as it might wish to make.

The Mission's reports were scheduled for con-sideration by the Council during 1952.


33 For list of petitions examined during 1951, seetable, pp. 791-98.

34 See p. 38.35 See Y.U.N., 1947-48, pp. 733-34.36 See p. 789.

684 yearbook of the United Nations

A brief description of conditions in each of thethree Trust Territories in East Africa is givenbelow, together with the conclusions and recom-mendations of the Council in connexion with itsexamination of the annual reports and petitionsof a general nature.

1. Ruanda-Urundi, Administered byBelgium

Ruanda-Urundi covers a total area of 54,172square kilometres in Central Africa. In 1950, thepopulation, according to the Administering Au-thority's annual report37 comprised 3,957,794 in-digenous inhabitants, 3,733 Europeans, 1,963 non-indigenous Asians and Africans and 1,207 mu-lattos and half-castes.


The Territory is divided into two countries or,pays, Ruanda and Urundi, each headed by a heredi-tary Mwami (king) chosen by indigenous customand invested by the Governor of the Territory.Ruanda-Urundi continued to be united adminis-tratively with the Belgian Congo Colony under theAct of 21 August 1925, which made it a Vice-Government-General and provided that Ruanda-Urundi should have a separate juridical personalityand its own finances and assets. Executive powersare vested in the Governor of Ruanda-Urundi.According to the Administering Authority's an-nual reports, supreme legislative power is exer-cised by the Belgian Parliament in the form of"Acts" (lois); ordinary legislative power is ex-ercised by the Crown in the form of decrees,which, except in cases of urgency, are submittedto the advisory Colonial Council in Belgium. TheGovernor-General of the Belgian Congo haspower to issue legislative Ordinances in cases ofurgency. Decrees and legislative Ordinances arenot applicable to Ruanda-Urandi unless they areexpressly stated to be applicable or unless theGovernor of Ruanda-Urundi makes them appli-cable. In cases of urgency, the Governor maytemporarily suspend the validity of decrees andsign Ordinances having the force of law.

There is neither popular representation nor anyelectoral body in Ruanda-Urundi. The Council ofthe Vice-Government-General, an advisory body,meets for a few days each year and examinesbudgetary proposals and questions submitted toit by the Governor. The Council has 22 members,seven ex officio and fifteen appointed, five to

represent more particularly the indigenous inhabi-tants. Until 1949, when the two Bami (plural ofMwami) were made ex officio members, with in-digenous notables as their alternates, all memberswere Europeans. In 1951, the Administering Au-thority informed the Council, a third indigenousmember, with an African alternate, was appointedto the Council. This was noted with satisfactionby the Trusteeship Council, which recommendedthat the number of African members be furtherincreased. The Trusteeship Council, noting thatthe Council of Vice-Government-General is stilla consultative body, considered that it might be-come a valuable medium for political educationand recommended that the Administering Au-thority further explore the possibilities of develop-ing it. It expressed the hope that the Administer-ing Authority would soon be able to review thefunctions of this organ with a view to delegating,to it some legislative powers, as had been recom-mended by the Trusteeship Council in 1950.

The administrative arrangements between theBelgian Congo and Ruanda-Urundi, examined bythe Trusteeship Council in 1950,38 were againconsidered in 1951 by the Council's StandingCommittee on Administrative Unions. Adoptingthe Committee's conclusions and recommendations(T/919), the Council referred to its previousrecommendation to the Administering Authorityto consider reviewing the legal form of the ad-ministrative arrangements with a view to bringingit more fully into accord with existing practices,and expressed the hope that the AdministeringAuthority would inform the Standing Committeeof any such review or of action taken. The Councilstated that it realized that the Administering Au-thority had not yet had sufficient time to considerthis question.

In 1950, the Council had enumerated (293-(VII)) certain safeguards39 which it considerednecessary for the exercise of its functions and forthe protection of a Trust Territory involved in anadministrative union. During its review of the

37 Rapport soumis par le Gouvernement Belge à l'As-semblée Générale des Nations Unies au sujet de l'Admi-nistration du Ruanda-Urundi pendant l'année 1949(Brussels, 1950) and Rapport . . . pendant l'année 1950(Brussels, 1951). For detailed discussions of thesereports in the Trusteeship Council, see summary recordsof the ninth session of the Council (6 June-30 July1951); summaries of the observations of individualmembers are included in the Council's report to theAssembly (A/1856). For general discussion in theAssembly concerning conditions in Trust Territories,see pp. 768-72.

38 See Y.U.N., 1950, p .

759.39 See p. 778.


administrative arrangements between Ruanda-Urundi and the Belgian Congo, the StandingCommittee found no indication that these safe-guards were not satisfied.

Both Ruanda and Urundi are divided intochiefdoms and sub-chiefdoms under chiefs andsub-chiefs appointed by the Mwami in accordancewith customary law and invested by the Gov-ernor. In 1949 and 1950, the Administering Au-thority indicated, the two Bami and eight chiefsand notables visited Belgium. The TrusteeshipCouncil expressed the hope that this practice ofinviting chiefs to Belgium for periodic visits, forwhich it commended the Administering Author-ity, would be continued. Describing further theindigenous political structure, the AdministeringAuthority stated that the Bami and the chiefs areassisted by councils for Ruanda, for Urundi andfor the various chiefdoms which must by law beconsulted on certain matters. The pays and thechiefdoms have autonomous budgets and trea-suries; due to the inexperience of the indigenousauthorities, the Administering Authority explained,the treasuries of the pays are temporarily admin-istered by the two Residents and the treasuries ofchiefdoms by the Territorial administrators, withthe collaboration of the indigenous authorities.However, the Administering Authority reportedthat new accounting regulations for these trea-suries, to be put into effect in 1951, gave indi-genous authorities a very large part in managingthe finances of their districts.

The proposed reform of the indigenous politicalsystem, the Administering Authority reported, wasreaching an advanced stage. The object of thereform was to establish new councils at the sub-chiefdom and Territorial levels in addition to theexisting councils at the pays and chiefdom levels.Election of members of the various councils wouldfollow a procedure corresponding to the stage ofdevelopment of the population. Each councilwould choose its chairman from among its mem-bers, and the Conseil de pays would be vestedwith such legislative powers as were consideredfeasible. The Trusteeship Council noted with in-terest the proposed revision of the Ordinance onthe indigenous political organization wherebyelectoral principles would be partially applied tothe indigenous councils, which would to someextent exercise legislative powers. It consideredthat such reforms held great promise of trans-forming the indigenous feudal political institu-tions of the Territory into truly representativeinstitutions, and expressed the hope that the an-

nual report for 1951 would contain detailed in-formation on the new system.

The selection of council members by ballothad already been attempted, without great success,in two urban areas in centres (centres extra-coutumiers) inhabited by indigenous Africans notliving under the system of chiefdoms, the Admin-istering Authority reported. In the first experi-ment, conducted in the centres in Usumbura in1949, the people had taken no interest in theelections, which they regarded as an imposition;in the second, held in Rumonge in 1950, the factthat numerous electors were illiterate preventedthe absolute secrecy of the vote, and this led tothe defection of the electors. A new attempt, theAdministering Authority stated, would be madein Usumbura in 1951 and would be preceded by apropaganda campaign designed to teach the in-digenous inhabitants the mechanism of election;all measures would be taken to make the votersaware of their task and capable of voting inabsolute secrecy.

The Trusteeship Council expressed its satisfac-tion at these careful and elaborate preparationsand its hope that the obstacles causing earlierelections to fail would be surmounted and theway cleared for further elections in other centresextra-coutumiers throughout the Territory. Thedevelopment of an organized electorate and repre-sentative political institutions at the local level,and the constitution of a representative centrallegislative body with real powers and responsibili-ties were, the Council considered, among thefundamental problems in the Territory.

The number of European officials employed inthe general administration of the Territory in-creased from 85 in 1949 to 131 in 1950, theAdministering Authority reported, and the num-ber employed in local administration rose from124 to 127 in Ruanda, and from 141 to 146 inUrundi. In 1950, the Civil Service included in thepermanent staff 451 literate Natives in subordinateposts, as against 419 in 1949, and the Administra-tion also maintained a corps of 282 Native police(compared with 335 in 1949). The AdministeringAuthority stated that it intended to extend theresponsibilities of the indigenous authorities, withthe objective of transferring gradually to themresponsibilities now discharged by the EuropeanAdministrations.

The Trusteeship Council noted this policy withapproval and it recommended that increased op-portunities be provided for the advancement ofqualified Africans into the higher ranks of the


European administrative service. To this end,the establishment of a training programme forAfrican personnel, including the possibility forspecialized training abroad, should be considered,the Council recommended.

With regard to the judicial organization in theTerritory, the Administering Authority reportedthat, while indigenous courts remained unchanged,the Decree of 5 July 1948, which came into forceon 1 July 1949, had considerably modified thenon-indigenous court system by stressing the sep-aration of powers between the executive and thejudiciary. The Governor of Ruanda-Urundi is nolonger chief public prosecutor and president ofthe Court of Appeals, but has been replaced inthese functions by members of the judiciary, andthe competence of the Residency courts, presidedover by civil servants, has been reduced. TheTrusteeship Council noted with satisfaction thegreater measure of separation of political fromjudicial powers.

b. ECONOMIC DEVELOPMENTRuanda-Urundi is primarily an agricultural

country. During 1950, the Administering Author-ity reported, a plague of caterpillars and prolongeddrought spoiled what had looked like a promisingharvest. It was estimated that 1,318,014 hectares,(24.3 per cent of the total land area) were undercultivation, 97.4 per cent of which was used bythe indigenous population for growing foodstuffs.The indigenous inhabitants are advised by theAdministration's agricultural experts and fur-nished with selected seeds from the experimentalstations. To forestall famine, a certain amount ofcultivation is compulsory. The Administering Au-thority emphasized that this was in the exclusiveinterest of the growers, who freely dispose of thecrops. Continued increases in the area broughtunder cultivation through the drainage of marsh-land, irrigation, and anti-erosion measures werereported for 1949 and 1950. Under a programmefor famine prevention financed by the IndigenousWelfare Fund, 30 storehouses, with a total capa-city of 12,000 tons of foodstuffs, were to be built;six were nearly completed by the end of 1950.The Administering Authority was commendedby the Trusteeship Council for these anti-faminemeasures.

Increased production of industrial crops is alsoencouraged by the Administering Authority. Allof the cotton and most of the coffee and oil areproduced by indigenous inhabitants. Production ofcoffee, exclusive of a comparatively small amount

of marketable coffee produced by non-indigenousinhabitants, amounted to 10,000 tons of coffeebeans in their parchment in 1949 and 15,675 tonsin 1950; production of cotton seed amounted to3,737 tons in 1949 and 3,220 tons in 1950; pro-duction of palm oil to 635 tons in 1949 and 664tons in 1950; production of palmetto nuts to 250tons in 1949 and 236 tons in 1950; production ofcastor oil to 1,860 tons in 1949 and 2,390 tons in1950 (a rise attributed to increases in demand andin prices on the world markets); production ofpyrethrum to 699 tons in 1949 and 1,003 tons in1950; and production of cinchona bark to 103tons in 1949 and 115 tons in 1950. Most pyre-thrum and chinchona bark is produced by non-indigenous planters.

The output of minerals, which was entirelyin the hands of six mining companies and 25settlers, was valued at 165,728,457 francs40 in1949 and 180,600,650 francs in 1950. The generalright to prospect, which had been suspended in1941, was restored on 1 June 1950, and the Ad-ministering Authority reported that the Territoryhad embarked upon a new phase of intensiveprospecting.

The principal imports are cotton goods, cement,petrol, tools, agricultural and industrial machineryand vehicles. The principal exports are coffee,cattle, skins, cassiterite, gold and cotton. In 1950the Belgian Congo supplied 51 per cent of Ruanda-Urundi's imports and received 30 per cent of itsexports, according to value. Next in importanceas suppliers and customers were Belgium and theUnited States. The Office Beige du CommerceExtérieur opened an office during 1950 at Leo-poldville, Belgian Congo, to promote trade be-tween the Belgian Congo and Ruanda-Urundi.Imports increased to 79,771 tons with a value of1,175 million francs in 1950, as against 57,643tons with a value of 805 million francs in 1949,while exports declined in volume from 72,217 tonswith a value of 731 million francs in 1949 to70,440 tons with a value of 1,083 million francsin 1950. This decline was mainly accounted forby food products, which were becoming increas-ingly difficult to export because the cost of trans-port was high in relation to the low value of theproducts.

The export and import trade is left to privateenterprise. It is still almost exclusively in thehands of non-indigenous inhabitants, though someindigenous traders import dried fish from Tanga-

40 Throughout this section, francs=Belgian Congo

francs, which are at par with Belgian francs.


nyika. Trade in certain products, such as coffee,castor oil, pepper and skins, is controlled by theGovernment to ensure good quality in the productsintended for export. Cotton, after being treatedand transported to seaports by cotton companies,is disposed of by a central selling organizationand since 1 December 1949, the AdministeringAuthority reported, all the profits from the saleof cotton and its by-products have been reservedfor the indigenous planters. The AdministeringAuthority also indicated that two indigenous cof-fee growers had now been included in the man-agement of the Native Coffee Board. The Trustee-ship Council commended the Administering Au-thority for this action, and expressed the hopethat it would consider giving similar representa-tion to cotton growers in the cotton organization.

The rising number of independent indigenousestablishments engaged in internal trade waspointed out by the Administering Authority;these had increased from 28 in 1948 to 50 in1949 and to 228, or one-sixth of the total tradingshops in the Territory, in 1950. With the en-couragement of the Administration, more andmore indigenous inhabitants were undertakingother activities, such as transport, brick-making,carpentry and various crafts. Twenty new tradingcentres had been opened in Urundi; the Admin-istering Authority stressed the educational valueof these centres, where only the Natives couldtrade, and where they were thus protected fromthe formidable competition of non-indigenoustraders. The Trusteeship Council commended theAdministering Authority for the steps taken toincrease the participation of indigenous merchantsand artisans in the commercial activities of theTerritory.

With respect to industrial development in theTerritory, the Administering Authority reportedthat there were 229 indigenous industrial plants,of which 167 were concerned with constructionand building and were controlled by the chief-doms. Non-indigenous inhabitants operated 782plants, mostly in either building or agriculturaland related industries.

The Administering Authority pointed out that,despite a favourable economic situation and steadydevelopment, the Territory's economy was basedon only a few products. It was aware of thedangers inherent in this too-primitive economyand stated that a ten-year plan for the economicand social development of the Territory had beenprepared during 1949 and 1950 and had beensubmitted to the Belgian Government for ap-

proval. This plan contemplated not only the de-velopment of existing activities, but also andabove all the creation of new resources and theindustrial organization of the Territory.

With reference to the general economic situa-tion in the Territory, the Trusteeship Councilnoted that the Administering Authority recog-nized the dangers inherent in the fact that theTerritory's economy was based on only a fewproducts. It expressed approval of the steps takenby the Administering Authority during 1949 and1950 to increase and diversify export productionand to apply scientific methods to problems ofconservation and expansion of production. It ex-pressed the hope that the ten-year plan would soonbe formulated and adopted, and that it wouldplace special emphasis on increasing the participa-tion of the indigenous inhabitants, on a moreresponsible level, in the economic life of theTerritory.

There was only one co-operative in the Terri-tory, the indigenous Nyanza dairy and cheesefactory, but the Administering Authority indi-cated that it planned to establish a co-operativeof Native traders at Usumbura in 1951 and thatthe proposed ten-year plan would give priority tothe development of co-operative enterprises. Thispolicy was noted with satisfaction by the Trustee-ship Council, which expressed the hope that moreco-operatives would be established.

Cattle are superabundant in the Territory, theAdministering Authority reported, and pastureland encroaches to a dangerous extent on landavailable for cultivation. Cattle are owned ex-clusively by the indigenous population and, al-though of indifferent quality, are considered as asign of wealth. In 1950, there were 985,110 headof cattle (compared with 973,658 in 1949). Therewere also 1,362,236 goats (compared with 1,255,-134 in 1949), 430,330 sheep (compared with 424,-047 in 1949) and 42,152 pigs (compared with35,073 in 1949) in the Territory. The Adminis-tering Authority stated that great efforts to reducethe numbers and improve the quality of cattlewere being made, and that one of the main ob-jectives of the ten-year plan would be to attemptto liberate the indigenous inhabitants from theirobsessive belief in the importance of the cow.

The Trusteeship Council, noting that the cattlequestion remained one of the most urgent anddifficult problems of the Territory and that theAdministering Authority was giving serious at-tention to it, urged the Administering Authorityto continue to consider this matter as a major


economic and social issue, and to continue tostudy the problems of overstocking and of placingcattle-raising on an economic basis.

Data on land tenure revealed that in 1950 in-digenous inhabitants owned about 36,000 squarekilometres of land, the Government 126 squarekilometres, and non-indigenous inhabitants 220square kilometres. By law, only the Administra-tion may conclude contracts with the indigenousinhabitants for the acquisition or occupation ofpart of their land or for the transfer of theirrights in respect of non-state land. With refer-ence to its policy of restricting European settle-ment, the Administering Authority reported in1949 that the granting of agricultural concessionsto non-indigenous inhabitants had been furtherlimited to concessions not exceeding five hectaresfor residential purposes. In 1950, it announcedthat the granting of any new concessions to non-indigenous agricultural settlers, even over smallareas, had been temporarily suspended by Min-isterial decision. The Trusteeship Council com-mended the Administering Authority for this de-cision.

Reporting on the financial situation of the Ter-ritory, the Administering Authority indicated thatfrom 1947 to 1949 the public debt remained atthe level of 20 million francs. In 1950 a newloan from Belgium raised it to 170 million francs.Territorial revenue and expenditure for 1950 onthe ordinary budget were estimated at 277 millionfrancs and 325 million francs, respectively. Theprovisional figures for revenue actually receivedin 1950, however, were cited at 351 million francs,including 123 million francs from customs dutiesand 90 million francs from indigenous taxes (poll,polygamy and cattle taxes). Expenditure for 1950on the extraordinary budget was estimated at 160million francs, chiefly for work on roads andmiscellaneous construction, this expenditure to becovered by a reimbursable interest-free advancefrom Belgium. In addition, an expenditure of 54million francs was anticipated to carry out the1950 programme of the Indigenous WelfareFund; this Fund had contributed 50 millionfrancs in 1948 for the anti-famine campaign and71 million in 1949, mainly for medical servicesand education. (The above figures do not includedata from the budgets of the indigenous treas-uries.)

Referring to previous Trusteeship Council rec-ommendations concerning indigenous taxes andthe imprisonment of defaulting taxpayers, the Ad-ministering Authority observed that the poll tax

was so calculated that the least affluent Native wasable to pay it without too much hardship. It re-ported that in 1950 1,614 persons were impris-oned or subjected to distraint of property, out ofa total of 788,059 taxpayers. In 1949, the figurewas 976.

On the basis of the Administering Authority'sreport for 1950, the Trusteeship Council notedthat a valuable contribution to the Territory'sbudget was being made by the mining industry.The Council asked that future annual reports in-clude fuller information on the proportion con-tributed by this industry to the total budget, andon the relation of this contribution to the profitsof the mining companies.


Ruanda-Urundi is the most densely populatedcountry in Africa, and, in view of the poverty ofthe soil, the Administering Authority regards itas over-populated. Since 1937, the Belgian Congohas opened 37,000 hectares of fertile land to emi-grants from Ruanda, but the economic conse-quences of the resulting population movementwere considered almost negligible. The Adminis-tering Authority considered cattle an obstacle toemigration and stated that the redistribution ofthe population would be slow because of the num-ber of cattle involved. The Trusteeship Councilconsidered the over-population and mal-distribu-tion of the population a problem of major im-portance. Recalling its sixth session recommenda-tion on the subject, it again expressed the hope,that the Administering Authority would continueto study the possibilities of migration from over-crowded areas into less heavily populated areaseither within Ruanda-Uruandi or in neighbour-ing territories.

The emigration of workers continued. During1950, the Administering Authority reported, 11,-294 workers went to the Belgian-Congo, mainlyunder long-term contracts; 24,229 workers emi-grated to British territories, chiefly for seasonalemployment in Tanganyika and Uganda. At a sys-tem of annual conferences instituted in 1948 bythe Governments of Ruanda-Urandi, Uganda andTanganyika, matters relating to seasonal emigra-tion are discussed and settled. The AdministeringAuthority stated that everything was done to pro-vide the emigrants with the maximum guaranteesof security, particularly through controlled recruit-ment, the building of transit camps and the provi-sion of medical services.


In Ruanda-Urundi, the number of workers inpermanent employment rose from 59,515 in 1948and 71,016 in 1949 to 80,293 in 1950, of whom27,463 were in industry and 10,271 in agriculture.In addition to voluntary employment, compulsorylabour without pay is required for the burial ofbodies, for reafforestation, for cultivation of food-stuffs in the exclusive interest of the population,and in general for any works for famine preven-tion. Other forms of compulsory labour exist, forexample, for school and hospital construction, butthese are paid for at the normal wage rates pre-vailing in the area. Amendment of the legislationgoverning compulsory labour, the AdministeringAuthority stated, was under consideration.

Surveys of the cost of living of workers andof indigenous inhabitants in tribal communitieswere made during 1949. Pointing out that since1946 the average salary scale had gone up 50per cent, the Administering Authority reported in1950 that average daily wage rates at Usumburaranged from 10 to 12 francs for a labourer and7 to 10 francs for an agricultural worker andhigher for skilled workers (40 to 100 francs, forexample, for a driver and 25 to 150 francs for atypist). The Administering Authority later in-formed the Trusteeship Council that an Ordinanceof 24 April 1951 had just increased the minimumsalary scale by 40 per cent. This was noted by theCouncil. It also noted that wages were very lowand, recalling its previous recommendation on thissubject, recommended that the Administering Au-thority continue to carry out studies of the stand-ards of living and wages of the indigenous in-habitants with a view to raising their social level.With regard to an earlier recommendation of theCouncil for the abolition of penal sanctions forbreach of labour contract, the Administering Au-thority reported that, under a projected revisionof the legislation, it was proposed to exempt frompenal action for non-fulfilment of contract certaincategories of indigenous workers—those who hada certain amount of education and those who hadthree years of service without having been prose-cuted. In 1950, the courts imposed 974 sentencesof imprisonment for desertion from work andother derelictions of duty (against 981 in 1949),206 nonjudicial fines for minor offences (against316 in 1949) and there were 87 acquittals(against 35 in 1949); out of 32 cases againstemployers, seven fines were imposed, eight caseswere suspended without further action or endedin acquittal and seventeen cases were sub judice.

The Administering Authority reported that sev-eral important decrees had been promulgated re-cently to protect the family and the status ofwomen, including a decree establishing penaltiesfor adultery, decrees on the protection of mono-gamous marriage, on the establishment of patern-ity and on the abandonment of the family. A de-cree forbidding polygamy, adopted in the BelgianCongo on 4 April 1950, however, was not madeapplicable to Ruanda-Urundi, the AdministeringAuthority stated, because the right to practisepolygamy is regarded by Arab and Waswahiligroups as one of the elements of religious free-dom. The Trusteeship Council, after noting thelegislation adopted, recommended that the Admin-istering Authority continue to take measures toimprove the status of women in the Territory.

Among developments in the social field was theopening of two social service centres for whichpremises were under construction. This was notedwith satisfaction by the Trusteeship Council.

In 1949, on the basis of the Visiting Mission'sobservations concerning discrimination againstAsians and of the Council's examination of peti-tions on this subject, the Trusteeship Council hadasked the Administering Authority to review alllegislation containing discriminatory provisions.During its ninth session, the Council was in-formed by the Administering Authority that dis-crimination as regards the legislation on firearmswas eliminated by an Ordinance of 22 February1951, and that the legislation relating to thepenitentiary system and to alcoholic beverages wasbeing reviewed with a view to eliminating dis-criminatory provisions. The restrictions relating toalcoholic beverages, it was stated, were not basedon racial discrimination against Asians, but wereintended to protect the indigenous inhabitantsagainst the pernicious effects of alcoholism andto prevent them from obtaining supplies of al-coholic beverages from Asians. Moreover, theseprovisions were applied as liberally as possible,and, in individual cases, non-Europeans might beplaced on the same footing as Europeans if theycould offer full guarantees against abuse. Withregard to residence, the Administering Authoritymaintained that the existence of separate Euro-pean, Asian and indigenous quarters in urbanareas was rendered necessary by the differences inthe ways of life of the communities, and thatthere was absolutely no unilateral prohibition toprevent Asians from living in the European quar-ters. It reported no changes in the immigrationlegislation.


The Trusteeship Council indicated its satisfac-tion with the revised legislation on firearms andnoted that revisions of legislation on the peniten-tiary system and on alcoholic beverages were be-ing considered. Reiterating its previous recom-mendation, the Council asked the AdministeringAuthority to continue reviewing all legislation in-volving discrimination, namely, legislation on res-idence and immigration.

Studies of prison reform were being continued,the Administering Authority reported. It statedthat the use of chains in prisons, in any form,had been abolished by an Ordinance of 12 July1950 and that solitary confinement was used onlyin grave, exceptional cases, as had previously beenrecommended by the Council, and could not, inany circumstances, last more than one month. Dur-ing the ninth session of the Trusteeship Council,the Administering Authority indicated that a de-cree concerning the re-education of juvenile de-linquents, had just been promulgated and it wouldbe applied in Ruanda-Urundi as soon as studieswere completed regarding the personnel and build-ings required.

The Council, noting this decree, expressed thehope that it would provide for the establishmentof reformatory schools for juvenile delinquents,and for the separation of children and adults inpenal institutions.

Concerning the abolition of corporal punish-ment, repeatedly recommended by the Counciland the General Assembly, the Administering Au-thority reported that it had reviewed the problemand that it was its firm intention gradually toabolish all forms of corporal punishment. Pur-suant to this policy, it had decided on 30 May1951 to eliminate the penalty of whipping as apunishment handed out by indigenous tribunalsand, pending the completion of its studies onpenal reform, to reduce from eight to four themaximum number of lashes to be applied as adisciplinary measure in penal institutions. Notingthis, the Council again recommended that theAdministering Authority immediately abolish cor-poral punishment.41

The Administering Authority reported that atotal of approximately 90 million francs was allo-cated to the medical service in 1950, as against100 million francs in 1949 and 42 million in1948. In 1950, the Territory had 35 hospitals, 90dispensaries, five maternity hospitals and one iso-lation hospital for sleeping-sickness cases, an in-crease of four rural hospitals and three missionmaternity hospitals as compared with 1948; addi-

tional facilities were under construction orplanned. Increases in the medical staff were alsoreported. At the end of 1950, total European med-ical personnel, including the government staff,comprised 54 medical practitioners, two pharma-cists, two dentists, eighteen midwives, 30 colonialnurses, twelve colonial welfare workers and 37medical assistants and health officers; indigenousmedical personnel comprised seventeen medicalassistants, 47 certificated male nurses, 443 assist-ant nurses and 67 assistant midwives. The totalnumber of consultations in 1950 was 7,515,676for the indigenous population, 18,829 for Euro-peans and 4,010 for Asians. Other developmentsduring 1950 included: (1) campaigns againstmalaria and recurrent fever; (2) the establish-ment of two infant clinics, bringing the numberto 46 in 1950; (3) hygiene instruction in socialdubs; (4) works in connexion with the watersupply system at Usumbura and Astrida; and (5)the work carried out by the hydrobiological mis-sion to improve water holes and to supply drink-ing water wherever possible.

The increases in medical personnel and medicalfacilities and the fact that more increases wereunderway were noted with satisfaction by theTrusteeship Council. However, it considered themedical services still not commensurate with theneeds of the population and reiterated its previousrecomendation that public health services be fur-ther improved and expanded.


With the exception of an official school at As-trida, the education of the indigenous inhabitantsis almost exclusively in the hands of religiousmissions. In the official school during 1950, atotal of 624 boys and 676 girls were receivingprimary education, 247 boys secondary educationand 125 boys were enrolled in special sections fortraining auxiliary medical, veterinary and agri-cultural personnel, candidates for chieftainshipand secretarial clerks. The pupils were taught byfourteen European missionaries and fifteen in-digenous "leaders" and, in the special sections, bynine European lay teachers. In schools run byCatholic missions, 341,861 pupils were enrolledin nursery schools, primary schools and chapelschools, 51 in domestic science schools, 210 incrafts apprenticeship workshops, 79 in schools forthe training of assistants, and 634 were beingtrained as "leaders"; the teaching staff comprised

41 For subsequent consideration by the General Assem-

bly, see pp. 784ff.


108 European missionaries, 34 indigenous priests,2,856 indigenous "leaders" and 2,589 catechists.The Protestant missions provided primary educa-tion for 110,853 children and training for 261"leaders"; teachers in these schools included 36European missionaries, 198 "leaders" and 2,181indigenous catechists. Moslem schools were at-tended by 841 indigenous Moslem children taughtby 23 indigenous "leaders".

Non-indigenous inhabitants attended an officialprimary school for Europeans (95 pupils), an of-ficial primary school for Asians (150 pupils) andtwo subsidized free Catholic schools (209 pupils).

With the exception of a few schools not yetin receipt of subsidies, the education given by theCatholic and Protestant missions is free.

The Administering Authority estimated that atleast 56 million francs was spent on education in1950, as compared with approximately 52 millionfrancs in 1949 and 23 million francs in 1948. Itreported that new schools were being constructedand outlined its plans for secondary education inthe Territory. In the meantime, it stated, 50 Ru-anda-Urundi nationals were attending the classicalsecondary school at Kivu in the Belgian Congo. Itproposed to set up, between 1950 and 1959, auniversity centre which would include institutesfor medicine, veterinary surgery, agriculture,pedagogy and administrative and commericalstudies. For the first time, as an experiment, theAdministering Authority stated, a student fromRuanda-Urundi was sent to Belgium to study in1949.

The Trusteeship Council commended the Ad-ministering Authority for the increase in budget-ary allocations for education. While it expressedsatisfaction that approximately two thirds of theschool-age children in the Territory attendedschools, the Council noted that approximately 75per cent of these attended chapel schools or simplereading schools which were neither subsidized norinspected by government officials. It requested theAdministering Authority to provide in future an-nual reports further information on these schoolsand, recalling its previous recommendation on thesubject, recommended that it establish secular of-ficial primary schools, providing for a full six-year course preparing the children for secondaryeducation. After noting the plans of the Adminis-tering Authority for the expansion of secondaryeducation, and the creation of a university centrein the Territory, the Council expressed its con-tinued concern over the small proportion of stu-dents qualified for education above the primary

level and recommended that the AdministeringAuthority further examine the possibility of grant-ing scholarships for secondary and higher educa-tion and of enabling students to study overseas.Noting that the teacher-training programme stillappeared inadequate, the Council urged the Ad-ministering Authority to place the greatest pos-sible emphasis on this programme, not only atthe primary level, but at the secondary and vo-cational level as well. It noted with interest theemphasis placed by the Administering Authorityon the education of girls, and requested detailedinformation on that subject in future annual re-ports.

The Administering Authority reported thatmany missions were organizing courses for illiter-ate adults and refresher classes for persons whoseschool education ceased at an early stage in theprimary schools. Study groups were being formedeverywhere for more advanced Natives, and atAstrida and Usumbura the Government has set upcentres for them at its own expense. Two mobilecinema groups travelled through the Territory in1950, and thirteen new libraries were added tothe four which existed since 1947. The Council,considering the importance of adult education,noted with satisfaction the increase in library fa-cilities, the use of the two mobile cinema units,and the imminent opening of a radio system, aswell as the measures contemplated in the ten-yearplan to combat illiteracy.

The Administering Authority outlined the ef-forts being made for teaching about the UnitedNations and the International Trusteeship Systemin the schools; this included the provision ofteaching material for the use of teachers andmaterial for insertion in school textbooks. TheAdministering Authority considered that all in-digenous inhabitants capable of taking an interestin the political future of their country were awareof the existence and objectives of the TrusteeshipSystem. It also pointed out that a compilation ofthe legislation of Ruanda-Urundi, published inJanuary 1950, and acquired by numerous literateindigenous inhabitants, contained in its first pagesthe Chapter of the Charter of the United Nationsrelating to the Trusteeship System and the fulltext of the Trusteeship Agreement for Ruanda-Urundi.

2. Somaliland, Administered by ItalyIn accordance with General Assembly resolution

289(IV)42 of 21 November 1949, Italy assumed42

See Y.U.N., 1948-49, pp. 275-77.


the provisional administration of this Territoryon 1 April 1950, pending approval of a Trustee-ship Agreement for the Territory. On 2 December1950, in resolution 442(V), the Assembly ap-proved the Agreement,43 which provided for theTerritory's administration by Italy, with the assist-ance of an Advisory Council, for a ten-year period(ie., until 2 December 1960), at which time, itwas provided, the Territory is to become an inde-pendent State. During its ninth session, the Trus-teeship Council noted that the Italian Parliamenthad not yet ratified the Trusteeship Agreementand welcomed a statement by the representativeof the Administering Authority that the Agree-ment was likely to be ratified shortly.44

In its first report on the Territory,45 the Ad-ministering Authority indicated that the Admin-istration had consulted the United Nations Ad-visory Council for Somaliland on all importantmatters. This was confirmed by the AdvisoryCouncil's report (T/923) covering its activitiesfrom 1 April 1950-31 March 1951. The Councilstated that it had advised the Administration, atthe latter's request, on many matters, including:the creation of the Territorial Council providedfor in the Trusteeship Agreement; the establish-ment of municipalities; the language to be usedin teaching, in addition to Italian; the participa-tion of Somaliland in the activities of the UnitedNations Educational, Scientific and Cultural Or-ganization (UNESCO); and the setting up of aCentral Scholastic Council. The Administration, itsaid, had received its suggestions favourably,particularly when the Council had offered its goodoffices to facilitate a settlement of certain ques-tions raised in various petitions and communica-tions. The Advisory Council reported that it hadbeen possible to constitute its quorum of twomembers46 only from 31 March-13 May 1950,from 26 May-10 September 1950 and from 2February-9 March 1951, but that a quorum hadexisted again since 23 March 1951.

The Trusteeship Council expressed its appre-ciation for the work of the Advisory Council. Italso noted with satisfaction that all members werenow permanently represented in the Territory,and that the relations of the Advisory Counciland the Administering Authority were character-ized by a spirit of co-operation.

As described by the Administering Authority,the Trust Territory of Somaliland has an area ofapproximately 500,000 square kilometres, extend-ing over a distance of 1,900 kilometres on theextreme north-east coast of Africa. The northern

part of the Territory, a plateau area of brokensurface, is covered by stunted scrub. The adjoiningarea to the south extending to the Ouebbi She-belli River is a sterile plateau area. The regionenclosed by the Ouebbi Shebelli and Juba Riversis an alluvial plain covered by acacia and euphor-bia. It is the area best suited for agriculture. Fin-ally, the area from the Juba River to the borderhas richer flora and fauna, due to heavier rainfall.

The climate is distinguished principally by themonsoon winds which prevail during eight ornine months of the year. Rainfall varies accordingto latitude and distance from the sea; it is heaviestin the south. However, much of the Territory issemi-arid and in some districts rainfall does notexceed 90 millimetres per year.

The indigenous population at the end of 1950was estimated at 1,242,199 persons, the greatmajority of whom were Somali, a nomadic andsemi-nomadic people. The non-indigenous popu-lation numbered approximately 23,000 Arabs,1,000 Indians and Pakistani, and 4,235 Italians.The seat of government is at Mogadiscio, as pro-vided in the Trusteeship Agreement.

a. BOUNDARY BETWEEN THE TRUST TERRI-TORY AND ETHIOPIA

In December 1950, the General Assembly re-solved (392(V) )47 that this boundary, in so far asit had not already been delimited by internationalagreement, should be fixed by bilateral negotia-tions between Italy and Ethiopia, or, failing that,by a United Nations Mediator. If the two Govern-ments were unable to accept the Mediator's recom-mendations, they were to agree to a procedureof arbitration. Meanwhile, the provisional boun-

43

For text of the Agreement and the annexed Declara-tion of Constitutional Principles, see Y.U.N., 1950,pp. 802-806.

44 The Council at its eighth session decided that Italy,as the Administering Authority of Somaliland, althoughnot a Member of the United Nations, should participatein its discussions concerning this Trust Territory as wellas concerning the operation of the Trusteeship Systemin general, see p. 90.

45 Italy, Ministère des Affaires étrangères, Rapport duGouvernement Italien à l'Assemblée générale des NationsUnies sur l'administration de la Somalie placée sous latutelle de l'Italie, Avril 1950-Décembre 1950 (InstitutoPoligrafico dello Stato P.V., Rome, 1951). For detaileddiscussions of this report in the Trusteeship Council, seesummary records of the ninth session of the Council(5 June-30 July 1951); summaries of the observationsof individual members are included in the Council'sreport to the Assembly (A/1856). For general discus-sion in the Assembly concerning conditions in TrustTerritories, see pp. 768-72.

46 For members and their representatives, see p. 37.47 See Y.U.N., 1950, p. 372.


daries of Somaliland under Italian administrationhad been fixed in March 1950, without prejudiceto the final settlement of the question.

At its eighth session, the Trusteeship Councilexamined two petitions (T/Pet.11/1 and 2)from Somali in Ethiopia on behalf of a numberof Somali tribes who protested against the pro-visional boundary, which, they stated, had dividedtheir people, causing them various hardships.They wished to be reunited with their tribes inSomaliland. The Council, by resolution 340(VIII)of 13 March 1951, referred the petitioners to theAssembly resolution and stated that it was notcompetent to deal with the matter.

At its ninth session, the Council took a similardecision (resolution 371(IX) of 2 July 1951)with respect to a petition from the InternationalEthiopian Council for Study and Report (T/Pet.11/23). This Council alleged that the border hadin the past been repeatedly violated by the Ital-ians and proposed that an agreed boundary linebe established and clearly demarcated geographi-cally by the United Nations. Another petitioner,Tom Groves (T/Pet.11/20), referred to articlesin the New Times and Ethiopia News chargingthat arms were being smuggled across the borderinto Ethiopia and that anti-Ethiopian propagandawas being disseminated in Somaliland. Claimingthat "the stage is being set for a fresh conquest ofAbyssinia", the petitioner requested an investiga-tion of these charges. The Administering Au-thority pointed out (T/908) that the two publi-cations mentioned were engaged in systematicpropaganda against the Italian Administration andthe charges made were without foundation. Onthe contrary, Italy was trying to foster friendlyrelations with the Ethiopians and was lookingforward to the early resumption of diplomaticrelations between the two Governments. Thisstatement was noted by the Trusteeship Council,and called to the attention of the petitioner inresolution 369(IX) of 2 July 1951.

b. INCIDENTS FOLLOWING THE TRANSFER OFAUTHORITY

The Administering Authority stated that im-mediately after the transfer of power there wereoutbreaks of violence in certain localities in theUpper and Lower Juba regions, particularly inBaidoa, between political groups holding divergentviews. Petitions concerning these incidents werereceived from the Chiefs and Notables of theGalcaio District (T/Pet.11/3, Part I), Abshir

Hassan and others (T/Pet.11/10), the CentralCommittee of the Somali Youth League (SYL)(T/Pet.11/14) and branches of the League atKismayo, Bardera, Lugh Ferrandi, Gardo, Schushu-ban, Hordio, Tarbeh (or Torba), Hafoun andBargal (T/Pet.11/7, 16-18, 27-31). These peti-tioners claimed that certain officers of the Admin-istration created dissension among the Somali andfavoured certain political parties, and that theyhad instigated armed attacks by certain groups,including, according to the SYL Central Commit-tee, the Hisbia Dighil Mirifle Party, against mem-bers of the SYL and other Somali in variouslocalities. Following these attacks, the petitionersalleged, only persons opposed to the Administra-tion, namely, members of the SYL, were imprison-ed; their homes and shops were sacked and allmembers and sympathizers of the SYL were forcedto flee from the Upper Juba. The SYL CentralCommittee claimed that, despite an amnesty ac-corded by the Administrator to political prisoners,a considerable number of members of the SYLwere still in prison and political arrests continued.

In its observations (T/908) on these petitions,the Administering Authority denied the occur-rence of arbitrary arrests, the distribution of fire-arms and the intervention in political affairs by theauthorities. It stated that the incidents between theHisbia Dighil and Mirifle people and the SYLresulted from the provocation and abusive treat-ment of the former by the SYL over the last fewyears, and asserted that the prompt interventionby the authorities had prevented more seriousconsequences. No political incidents had occuredsince May 1950, the Administering Authorityobserved, and the situation had generally improvedafter the granting on 17 July of an amnesty to allpolitical prisoners.

Referring to the Baidoa disturbances in theUpper Juba, the Administering Authority explain-ed that the 500 persons who had fled Baidoa wererepatriated with the Administration's assistance.The Advisory Council reported (T/923) that thePresident of the SYL had signed a declaration on27 January 1951 stating that he considered settledthe question of indemnities to the Baidoa refugees.The Administering Authority further pointed outthat on 1 May 1951 the Administrator had receiveda telegram from parties involved in the Baidoaincident, including the SYL branch, assuring himof their loyal collaboration.

The Administering Authority attributed con-flicts which broke out in July 1950 in the Mudughregion to the perpetual rivalry between two racial

Yearbook of the United Nations

groups over the possession of grazing grounds andwatering places, rather than to political motives,as stated in the petition of the SYL Central Com-mittee. A certain amount of pillage took place andpolice intervention was required, the Administer-ing Authority stated; the Administration alsoundertook to eradicate the causes of the conflictand to settle the outstanding disagreements be-tween the various ethnic groups. As a result,numerous assemblies of chiefs and representativesof the populations concerned agreed to the prin-ciple of peaceful settlement of future conflictsand of compensation for losses suffered; pasturelands reserved for particular ethnic groups weredelimited and in some instances transhumance(the seasonal movement of stock) was regulated.

During the ninth session of the TrusteeshipCouncil, the Administering Authority assured theCouncil that order and public security had beenre-established throughout the Territory. It statedthat the attitude of the SYL toward the Adminis-tration had developed from unyielding oppositionat the time of the transfer of authority to a posi-tion of constructive opposition. The other princi-pal political group, the Conference Party,48 fol-lowed a policy of close co-operation with theAdministering Authority. All parties, the Adminis-tering Authority stated, were more or less infavour of expediting the development of the Ter-ritory toward independence. It described the SYLas more progressive than the Conference Partyin this respect and stated that the SYL emphasizedthe need to hasten the disappearance of the tribalsystem.

The Trusteeship Council expressed its satisfac-tion at the improved relations between the Ad-ministering Authority and the political parties inthe Territory and urged them to continue workingtogether.

On 2 July 1951, the Council adopted nine reso-lutions relating to the above petitions (359(IX),361(IX), 363(IX), 365(IX)-368(IX), 374-(IX)-376(IX)). In each instance it referred thepetitioners to the observations of the Administer-ing Authority. It stated its opinion that the variousdisturbances had been caused by the general ten-sion prevailing in Somaliland at the time of thetransfer of power and expressed the hope that, inview of the currently peaceful atmosphere, suchincidents would not recur. The AdministeringAuthority was urged (resolution 368(IX)) totake all the necessary measures to ensure that itspolicy of non-discrimination as regards politicalparty membership was adhered to throughout the

Territory. In three resolutions (359(IX), 363(IX)and 365(IX)) relating specifically to the Baidoaincidents, the Council expressed its opinion thatthe incidents had been satisfactorily settled andnoted that subsidies had been granted by theAdministration to the Baidoa refugees. It recom-mended (resolution 366(IX)) that the Adminis-tering Authority ensure that victims of incidentsin Bardera who might still have rightful claimsbe allowed to submit them to the competentauthorities and that steps be taken to ensure thatthey would understand the procedure involved.The Council also informed the Central Committeeof the SYL and the Bardera and Lugh Ferrandibranches that it examined annually the variousquestions raised in their petitions and it calledtheir attention to all the recommendations con-cerning Somaliland adopted at the Council's ninthsession (resolutions 365(IX)-367(IX)).

c. POLITICAL DEVELOPMENT

The Administering Authority reported thatduring 1950 it had concerned itself principallywith the establishment of political and economicstability in the Territory. It stated that, in accord-ance with the terms of the Trusteeship Agreement,it had also taken the first steps toward the develop-ment of a foundation for the future independentSomali State.

Although a juridical organization for the Terri-tory was being studied, no organic law had as yetbeen enacted and, during the Trusteeship Council'sninth session, the representative of the Adminis-tering Authority expressed doubts whether anorganic law was necessary, since the TrusteeshipAgreement and, particularly, the Declaration ofConstitutional Principles, once ratified, wouldautomatically provide such a law. He stated that,by a proclamation issued upon the assumption byItaly of the administration of the Territory, legisla-tion in force on 31 March 1950 was to remain ineffect, with the exception of that relating solelyto wartime conditions as well as that requiringmodification to conform to the Charter of theUnited Nations and the Trusteeship Agreement.

The Administering Authority reported that ithad appointed an Administrator as head of theTerritorial Administration. The Six Regional Com-

48 This Party comprises the following group of parties:

the Unione Nazionale Somala, the Hisbia Dighil Mirifle,the Unione Africani Somalia, the Associazione GioventùAbgal, the Comitato Progresso Somalo, the Lega Pro-gressista Somala, the Hidaiet Islam Scidle Mobilen andthe Unione Bimalia.

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missariats and 27 Residencies had been placedunder the administration of Regional Commis-sioners and Residents appointed by the Admin-istrator.

The units of the indigenous political structure,according to the Administering Authority's report,are the rer, a group of families tracing theirdescent from a common ancestor, and the tribe,which comprises various rer. The tribal chief isselected by the tribal assembly and the nominee isratified by the Administration. He is responsibleto the Resident for the direction of tribal affairsand for the communication and enforcement of alladministrative Acts concerning the tribe.

The SYL branch of Lugh Ferrandi alleged (T/-Pet. 11/17) that the Administration imposedilliterate chiefs in Somaliland and imprisoned thecapable ones. Another branch of the SYL claimed(T/Pet.11/9) that the Regional Commissioner ofMigiurtinia had appointed five men of the Admin-istration party as chiefs in Bender Kassim. Com-menting on these petitions (T/908), the Admin-istering Authority assured the Trusteeship Councilthat the tribal chiefs were elected according toindigenous custom, and that the Administrationhad simply accorded formal recognition in eachcase. By resolutions 362(IX) and 367(IX) of2 July 1951, the Council drew the petitioners'attention to the Administering Authority's state-ment.

The Administering Authority, reported thatResidency Councils had been established in eachResidency of the Territory to enable the Adminis-tration to devote closer attention to the wishesand needs of the population and to enable thechiefs and notables to discuss questions of interestto an entire district. Each Council, it was ex-plained, is composed of all district chiefs andnotables, as well as village chiefs, market super-visors, section secretaries and, in Mogadiscio, thepresidents of the legally recognized political partiesand eminent outstanding notables. The Residentconvenes the Council, which may express itsopinion on all matters affecting the interests ofthe district, particularly agriculture, animal hus-bandry, transhumance, public works, taxation, andpublic education. The Administering Authoritystated that it also intended to establish municipalcouncils in the near future.

Under article 4 of the Declaration on Constitu-tional Principles, the Administrator is required toappoint a Territorial Council and to consult it onall matters other than defence and foreign affairs.Until the establishment of an elective legislature,

the Administrator is to exercise legislative author-ity. The Administering Authority reported thatonly those legislative provisions which wereindispensable for the functioning of the Adminis-tration were enacted during 1950, while those offundamental importance were postponed until theTerritorial Council began functioning.

Before establishing this Council, the Adminis-tering Authority stated, it had ascertained thewishes of the people through consultations on abroad scale with tribal and political organizationsand through a referendum. With respect to thereferendum, it noted that a portion of the popula-tion had shown no real understanding of the issuesinvolved. It further noted that divergent viewswere expressed concerning tribal, territorial andpolitical party representation on the Council, butthat all those consulted had ruled out suffrage asa means of selecting members.

The results of the referendum were communi-cated to the Advisory Council, which suggestedthat the organization of the Territorial Councilshould be based on the following principles: (1)the Territorial Council should have from 25 to35 members, appointed for one year, with anoverwhelming majority of Somali, no more thanthree fourths of whom should represent tribalgroups; (2) other Somali members should includerepresentatives of the major political groups;(3) representation should be given to agriculture,trade and commerce and wage-earners; (4) Italian,Arab and Indian-Pakistani communities shouldalso be represented, but Italian officials and Italianmembers of the security forces should be neitherelectors nor candidates; (5) in view of thenumber of languages and dialects, the Administra-tor should not apply a language qualification inappointing members; (6) the Territorial Councilshould hold two or three annual sessions, shouldelect a permanent committee to represent it be-tween sessions, and its official languages should beSomali, Arabic and Italian. The AdministeringAuthority stated that it took these suggestions intoconsideration in establishing the Territorial Coun-cil at the end of 1950.

As constituted, the Administering Authorityreported, this Council has 35 seats. Twenty-oneare held by Somali tribal representatives, seven bySomali political parties (four by the ConferenceParty and three by the SYL), two by economicgroups, two by the Italian community, two by theArab community and one by the Indian andPakistani communities. The Council, it was stated,would hold three annual plenary sessions and name

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a Permanent Committee to function between ses-sions to prepare the work of these sessions. TheAdministrator was to preside at meetings andadministrative officials might be asked by theAssembly to comment on matters under review.The Advisory Council reported that the TerritorialCouncil held its inaugural meeting on 29 January1951.

The Administering Authority stated that asystem of suffrage had not as yet been introducedbut it cited, as a first experiment, the election ofRegional Assemblies by the Residency Councilsand the election by the Assemblies of the membersof the Territorial Council. A gradual extension ofthis principle awaited the establishment of munici-palities and of a civil register.

In six petitions (T/Pet.11/9, 22, 27, 28, 30, 31),various branches of the SYL in the MigiurtiniaCommissariat protested that members of the Ter-ritorial Council from their respective districts hadnot been chosen by the League. It was alleged thatthey had been selected by the Administration fromamong members of the Lega Progressista Somala,which certain of the petitioners claimed was estab-lished or favoured by the Administration. In reply,the Administering Authority stated (T/908 &T/AC.41/SR.5) that the allegations concerningthe Lega Progressista Somala were without founda-tion. It further stated that the candidates for theTerritorial Council were selected as representativesof tribal organizations rather than of politicalparties by representatives of the Residency Coun-cils, which, in turn, had been freely chosen by thepeople. It also pointed out that the political partieswere represented in the Territorial and ResidencyCouncils and stated that their representation wouldbe broader in the future municipal councils.

The Trusteeship Council, after commending theAdministering Authority for establishing the Ter-ritorial and Residency Councils and for its plansto establish municipal councils, recommended thatit take further measures to increase the participa-tion and the representation in these organs ofgovernment of the indigenous inhabitants and ofall parties which responsibly represent publicopinion. It also recommended that the powers andcompetence of these bodies be constantly extendedas a means of developing among the people thepolitical experience required for the establishmentof the future independent State.

In resolutions 362(IX) and 370(IX), adoptedon 2 July 1951 on two of these petitions (T/-Pet.11/9 & 22), the Council stated that, in viewof the conditions currently prevailing in the Terri-

tory, the tribal structure could not be arbitrarilyignored, and a fully representative political systemcould not be established immediately. It invitedthe Administering Authority to continue to intro-duce gradually a more democratic political system,in which the non-traditional elements of the Ter-ritory would be encouraged to make their voicesheard. In resolutions 374(IX) and 375(IX) alsoadopted on 2 July 1951, the Council drew theattention of the other petitioners to the observa-tions of the Administering Authority.

The Administering Authority stated that theorganization of the administrative staff, which wasdivided into sixteen departments, was based inpart on the requirements of the future SomaliState. Of the 4,426 persons in the employment ofthe Administration, it reported, 3,641 were Somali,760 Italian, and 25 of other ethnic origin. Regula-tions concerning the juridical status and thegeneral conditions of service for Somali personnelwere being studied, the Administering Authorityindicated. No Somali as yet held a high post.

The SYL claimed (T/Pet.11/14) that allSomali holding responsible positions in the admin-istrative services prior to the transfer of powers toItaly had been arrested and imprisoned, dismissedor discharged from service; the SYL alleged thatover 300 persons had been discharged since thetransfer of powers. In reply, the AdministeringAuthority stated (T/908) that the Administrationhad for some time pursued a policy of graduallyincreasing the number of Somali in civil andmilitary posts and that Somali were occupyingresponsible posts in certain departments. It refer-red to the establishment of a School of PoliticalAdministration at Mogadiscio and pointed outthat this school would serve to increase the numberof Somali qualified for higher administrative posts.

The Trusteeship Council expressed its approvalof the establishment of this school. It also recom-mended that the Administering Authority makeevery effort to build as rapidly as possible a strongand efficient indigenous administration, utilizingtechnical and educational facilities both withinand outside the Territory.

As described by the Administering Authority,the administration of justice is based on the ItalianPenal and Civil Codes and the Somaliland Judici-ary Rules. Koranic and customary law are recog-nized in civil cases and, to the extent that theydo not conflict with the general principles of law,in penal cases when the parties concerned are ofthe Moslem faith. Cases in which one or more ofthe parties concerned is not a Moslem are adju-


dicated by the Italian courts. No distinction as torace or sex is contained in the legislation, but,under Koranic law and customary law, women areconsidered to be of subordinate status. Civil andpenal cases involving Italians and foreigners arewithin the jurisdiction of the Courts of theResidents, the Courts of the Regional Commis-sioners, the Judge of the Territory, the Court ofAssizes (penal cases only), the Court of Appealin Rome, and the Court of Cassation. Litigationbetween indigenous persons and foreigners havingthe same status is within the jurisdiction of theKadis, the Kadis' Courts and the Administrator, incivil cases, and of the Kadis, the Kadis' Courts, theRegional Commissioners' Courts, the Administra-tor, the Judge of the Territory, the Court ofAssizes and the Court of Cassation, in penal cases.

The Central Committee of the SYL maintained(T/Pet.11/14) that the carabinieri seemed to beinvested with full powers to arrest persons at theirdiscretion and to release them hours or days later,after subjecting them to ill-treatment and humilia-tion, and that houses were searched without awarrant, in violation of article 9 of the Declarationof Constitutional Principles. It also alleged thatjudicial decisions were determined by the reportsand recommendations of the police and that Italianlawyers appointed for the defence did not ade-quately defend the accused, particularly when hewas presumed to be "anti-Italian". The Adminis-tering Authority assured the Trusteeship Councilthat there was strict compliance with the provi-sions of the Italian Penal Code, which requiredthat those arrested without a judicial order bebrought before the judicial authorities within 24hours; it added that the search of houses was alsosubject to certain rules.

In another petition (T/Pet.11/26), MohamedAli Yusuf and others stated that there were mili-tary officers in the judiciary of the Territory whotried cases involving Somali. The petitionersrequested that these be replaced by civilians andthat Somali soldiers be judged also by civilians. Inreply, the Administering Authority stated (T/-908) that only one judiciary post was temporarilyfilled by a member of the military magistrature butthat he did not render judgments. It informed theCouncil that new regulations which were beingstudied would satisfy the desire of the indigenousinhabitants to participate in the administration ofjustice.

The Council drew the petitioners' attention tothese statements by resolutions 365(IX) and373(IX) both adopted on 2 July 1951; in the

latter resolution, the Council also expressed thehope that the Administering Authority wouldimplement the proposed regulations in the nearfuture and report to the Council.

d. ECONOMIC DEVELOPMENT

The indigenous economy of the Territory, ac-cording to the Administering Authority's report,is of a pastoral-agricultural type. The majority ofthe inhabitants are nomadic or semi-nomadicpastoralists; the relatively small group of sedentaryagriculturalists is confined principally to the banksof the Ouebbi Shebelli and Juba Rivers. Thegreater part of the productive effort of the indi-genous people is devoted to the satisfaction oftheir immediate wants and a relatively small partis devoted to production for distant markets. Afew Arab, British, Indian, Italian and Somali con-cerns are engaged in the export and import trade;most of the small traders are Somali. Industrialdevelopment was described as very limited. Theprincipal establishment was a sugar refinery. Therewere also two large saw-mills, several tanneries,plants for the extraction of oils from groundnuts,cottonseed and sesame, and some machine shops.Prospecting and exploration before the SecondWorld War revealed the presence of some tin,lead and iron, of lignite, and of geological forma-tions suggesting the presence of oil. In 1950permission to prospect was granted to an Italianmining company.

The main wealth of the Territory is in the formof stock, principally camels, cattle, and sheep, butstock is regarded as fixed capital or a source ofsocial prestige rather than as a commercial com-modity. The limited number of wells and thescarcity of rain frequently lead to a concentrationof cattle in restricted areas, giving rise to conflictover water holes and grazing lands. The Adminis-tering Authority considered that the nomadismand semi-nomadism resulting from periodic move-ments to new grazing lands and water supplieswas one of the fundamental problems hamperingthe advancement of the population. As a result ofthese movements, it stated, schools remain empty,the economy is uncontrolled, medical and healthprogrammes are not implemented, municipal servi-ces lack any real purpose, and civil registry officesare of dubious value. The Administering Authoritywas of the opinion that it was essential for thepolitical, economic, social and educational develop-ment of the Territory, that a stable pattern ofsettlement replace the prevailing system of sea-sonal movement.


The Administering Authority estimated that ofthe total land area, 40 per cent is uncultivable, 50per cent is pasture land, part of which can beused for certain crops, and 10 per cent is culti-vable or cultivated land. Under pre-war legislation,which is still in force, all lands occupied by in-digenous groups are regarded by the Admin-istering Authority as not disposable. Undercustomary law, individual rights to land arelimited and are based on an individual's mem-bership in a community. Legislation relating tothe ownership and alienation of land by non-indigenous persons is to be modified to conformwith the restrictions of article 14 of the Trustee-ship Agreement relating to the acquisition of landor other natural resources by non-indigenous in-habitants or organizations. The Administering Au-thority indicated that no concessions in agricul-tural lands were granted during 1950, since theTerritorial Council was not yet functioning. Alllands occupied or exploited by the indigenoustribes are regarded as their property. Ownershipof land by non-indigenous persons is as follows:Arabs, 1,500 hectares; Indians, 5 hectares; andItalians, 72,842 hectares. The Administering Au-thority's report stated that land in the possessionof non-indigenous persons represents about 2 percent of the cultivable or cultivated lands. Theseconcessions were granted before March 1941.

Sorghum, maize, beans, peanuts, bananas, se-same, sugar cane, cotton and rice were listed bythe Administering Authority as the principalcrops. The report indicated that, between April1950 and the end of the year, there was a fooddeficiency amounting to 6 million somalos; corn,flour, rice, coffee, spices, butter, sugar, and cannedfood were particularly in short supply.

The Administering Authority stated that it hadgiven much attention to the economic reconstruc-tion and development of the Territory and feltthat there had been a noticeable improvement bythe end of 1950. It considered that the desirableover-all economic pattern for the Somali shouldcombine agriculture and stock-raising, with farmsstrictly delimited, but grazing lands open. A de-terrent to the expansion of agriculture, it stated,was that, under the prevailing system of values,farming was regarded by the Somali as an undig-nified occupation. The indigenous inhabitants, itwas explained, sought employment on Europeanplantations only during the dry season when theirown lands were too dry to cultivate or when theywere suffering from a shortage of food. Incentives,such as loans, bonuses, housing and the use of ir-

rigable land, had been offered to overcome theproblem. There had also been an increase in con-tractual arangements whereby Europeans pro-vided farmers with selected seed in return for theright to purchase the harvested crop at a mutuallyagreed price. Mechanization as a means of solvingthe labour shortage and of increasing the area ofland under cultivation had been the subject ofparticular study. The establishment of irrigablefarms to be managed and administered on a co-operative basis by indigenous inhabitants was alsocontemplated by the Administering Authority. Itintended to assist the Somali to develop moreproductive forms of agriculture, particularly thecultivation of cotton and groundnuts. It addedthat a modern plant for weaving cotton textileswould soon be set up. In addition, an experi-mental station for animal husbandry and a schoolfor training in skinning and hide preparationwere being established.

The Administering Authority reported that,after making a survey of the Territory, two agri-cultural experts of the Economic Co-operationAdministration (ECA) presented recommenda-tions concerning livestock, ground water resources,fisheries, indigenous labour and farm mechaniza-tion. It stated that a programme of hydraulic re-search was already in preparation and that fundshad been allocated for the construction of 100new wells in 1951. The Technical Assistance Ad-ministration had sent a mission of experts to studythe terrain to decide on the location of wells.

The Administering Authority reported that theSomali were being encouraged to invest in indus-try and to increase their participation in com-merce; during the last half of 1950, about tenco-operative societies, with largely indigenousmembership, had been established in the fields ofagriculture, trade and transport. Direct financialaid to industry by the Administering Authority,however, was not contemplated. In order to stim-ulate development, the Administering Authorityreported, agricultural and industrial machineryhad been exempted from import duties until 30June 1954, and new workshops were not subjectto income tax for ten years. Moreover, a plan forthe extension of credit, particularly for agricul-ture, was under consideration, as well as a decreedesigned to attract foreign investment. Stressingthe need for the investment of large sums for theTerritory's development, the Administering Au-thority expressed the opinion that private foreigncapital, Italian or otherwise, would be reluctant toprovide the necessary sums without a guarantee


for a period exceeding that of the Trusteeshipadministration.

In two petitions (T/Pet.11/27 & 3D, SYLbranches in the Migiurtinia Commissariat com-plained that the Administration had taken no in-terest in them when their area had been devas-tated by an unprecedented drought. This was de-nied by the Administering Authority, which stated(T/908) that it had sent every kind of assistance,including medicines, food and money, to this re-gion during the severe drought. In reply to an-other petition (T/Pet.11/25), which complainedthat the people of Afmadu were unable to drawwater from their wells, the Administering Au-thority explained that the rationing of water hadbeen necessary to save the cattle. The TrusteeshipCouncil drew the petitioners' attention to the Ad-ministering Authority's observations in resolutions375(IX) and 372(IX), both adopted on 2 July1951.

After examining the economic situation in theTerritory, the Trusteeship Council recommendedthat the Administering Authority take all possiblesteps to encourage the production of basic foodcrops in the Territory in order to achieve a rea-sonable degree of self-sufficiency. It expressed sat-isfaction at the steps taken to explore the possi-bility of increased water supplies and to storefoodstuffs as a means of minimizing the effects ofthe prolonged droughts which were characteristicof the Territory; it recommended that the Admin-istering Authority continue these efforts and re-port on the progress achieved.

The Council noted the deficiency in naturalresources, the primitive economic organization andthe very slow rate of economic development ofthe Territory. These conditions, it felt, mighthamper the fulfilment of the aims set forth in theTrusteeship Agreement within the projected ten-year period. The Council accordingly recom-mended that the Administering Authority, withthe help of the pertinent international agencies,draw up a plan for the economic development ofthe Territory and report on this matter at theearliest possible opportunity. It also recommendedthat the Administering Authority make a fullstudy of nomadism, which, it noted, was one ofthe fundamental problems hampering the devel-opment of the Territory. It urged the Adminis-tering Authority to take all appropriate steps toencourage both public and private investment, andto study, in conjunction with the United NationsMission for Technical Assistance to Somaliland,all aspects of this question, in particular the meth-

ods which might be adopted to extend adequateguarantees to external private investors. TheCouncil suggested that, in addition, the Adminis-tering Authority should consider, in consulta-tion with the International Bank for Reconstruc-tion and Development, the measures which mightbe taken to augment the available resources forpublic investment in the Territory.

Imports and exports for the period 1 April-31December 1950 were valued at 43,632,289 and18,816,107 somalos, respectively, as compared to20,744,852 and 12,740,954 East African shillingsfor the same period in 1949.49 The increase inimports considerably increased the monetary defi-cit in the Territory and this deficit had beenborne by the Administering Authority. Financialdata in the Administering Authority's report re-vealed that territorial receipts amounted to 25,-380,130 somalos and expenditure for the civiladministration to 55,907,454 somalos, the differ-ence being contributed by the Government ofItaly. In addition, all obligations relating to theSecurity Corps were charged to Italy's budget. Forthe year 1950-51, the Administering Authoritystated that it was contributing 114,324,797 so-malos toward the expenses of the civil adminis-tration and the Security Corps.

Local sources of revenue are: customs duties;taxes on the manufacture of sugar and alcohol;the revenues from the government monopoly ontobacco and matches; a progressive income tax;a hut tax; business and trade taxes; postal reve-nues; port fees; and sanitation and hospital fees.

The Council suggested that, in preparing fu-ture budgets for the Territory, the AdministeringAuthority might present separately details on:(1) those initial and recurrent charges borne di-rectly by the Administering Authority which willnot form a subsequent charge on the resources ofthe independent Somali State; and (2) those cap-ital and recurrent charges which will ultimatelybe borne by the revenues of the future State.

e. SOCIAL DEVELOPMENT

According to the Administering Authority's an-nual report, the standard of living of the inhabit-ants improved during 1950 as a result of: (1) a25 per cent increase in salaries, (2) increasedagricultural and industrial activity, (3) a publicworks programme undertaken to reduce the num-

49 The rates of exchange of the Somalo and the EastAfrican shilling are identical. 20 somalos=20 EastAfrican shillings=£ Sterling 1=U.S.$2.80.


her of unemployed, and (4) back pay providedformer employees of the pre-war Italian Admin-istration. Drought affecting wide areas had, how-ever, resulted in a number of deaths. A prelim-inary study of the living standards of a group ofindigenous residents of Mogadiscio, the Adminis-tering Authority stated, showed that, on the basisof an index of 100 representing expenditures dur-ing April 1950, the indices for the month of De-cember were as follows: food, 107.60; clothing,104.19; housing, 166.66; fuel and lighting, 121.21;and miscellaneous, 150.00.

Both the qualitative and quantitative output oflabour in the Territory was considered unsatis-factory by the Administering Authority. It foundthat the indigenous worker was deficient by West-ern standards in terms of assiduousness, steadinessand a sense of responsibility and that he showedno foresight or desire to improve his living stand-ards. The Administering Authority considered theirregularity in attendance disquieting and at-tributed it to the preference of the indigenousworker to remain in employment only until hehad earned enough to satisfy his minimal needs.The Administering Authority stated, however, thatit was studying measures, particularly those relat-ing to sanitation, whereby improvement in thequality and quantity of labour might be achieved.While it believed these measures would lead toprogress, it recognized that a patient and con-stant educational process was required.

The admission of immigrants, including Italiancitizens, is regulated by the Administering Au-thority, which stated that only those persons whocould contribute usefully to the economic devel-opment of the Territory were admitted. Up to theend of 1950, it reported, entry permits had beengranted to 113 Arabs, 84 Indians, 1,233 Italians(including Administration personnel and theirfamilies as well as the families of military person-nel), eleven Europeans, and two others.

The SYL Central Committee stated in its peti-tion (T/Pet.11/4) that, in view of the very lim-ited resources of the Territory and in order tosafeguard the interests of the indigenous inhabit-ants, the Administering Authority should not per-mit the immigration of aliens. It alleged that aproclamation issued to this end by the Adminis-tering Authority was applied only to the Somaliinhabitants of neighboring territories and not toArabs, Indians and Italians. It further claimed thatthere was a continuous flow of Italians to theTerritory. In its observations on this petition, theAdministering Authority stated (T/908) that

there was strict control over immigration and that,as of 30 April 1951, 270 entry permits had beengranted to Italians (other than Administrationand military personnel and their families), 205 toArabs, and 139 to Indians and Pakistani. The Ad-ministering Authority stated that the movementof the inhabitants within the Territory was unre-stricted. In reply to three petitions (T/Pet.11/-14, 16 & 29), in which it was charged that personswere sometimes forced to settle in areas otherthan those where they had customarily resided,the Administering Authority stated (T/908) thatexpulsion had occurred only in cases involvingbeggars and vagabonds, who were sent back totheir original communities in accordance withBritish Military Proclamation No. 19 of 1943,which was still in effect.

Il Corriere della Somalia, published by the Ad-ministration, is the only daily newspaper pub-lished in the Territory. The Administering Au-thority stated that it planned to establish a broad-casting station at Mogadiscio which would broad-cast programmes in Somali. The Bardera branchof the SYL claimed (T/Pet.11/16) that freedomof speech and of the Press had been suspendedin the Territory. In another petition (T/Pet.11-23), it was alleged, inter alia, that the progressreport (A/C.4/178) submitted by the AdvisoryCouncil in 1950 contained a statement to theeffect that the circulation of only official or Italiannewspapers was allowed in the Territory. TheAdministering Authority stated that this allegationwas unsupported by facts.

The Trusteeship Council informed the peti-tioner that it did not feel called upon to decidewhether the allegations made truly reflected theviews expressed in the Advisory Council's progressreport (resolution 371(IX) of 2 July 1951). TheTrusteeship Council also informed both peti-tioners that it annually examined all questions re-lating to the administration of Somaliland andcalled their attention to all the recommendationsmade during its ninth session concerning this Ter-ritory.

Medical facilities in the Territory include threehospitals at Mogadiscio, four secondary hospitalsin the interior, four general dispensaries, fourmaternity and pediatric dispensaries, and twelveinfirmaries. In 1950, the Administering Authorityreported, there were 37 Italian doctors, 207 malenurses, 26 female nurses and 46 student nurses.The Administering Authority stated that it in-tended to continue to develop all forms of medicalassistance so as eventually to have a network of


medical centres throughout the Territory; 8,105,-474 somalos had been allocated for medical andpublic health services for the year 1950-51.

The measures taken by the Administering Au-thority in the field of health and hygiene werenoted with approval by the Trusteeship Council,which recommended that further steps be taken toextend these services and that particular attentionbe given to training medical personnel and to in-creasing the number of physicians.

f. EDUCATIONAL DEVELOPMENT

The Administering Authority stated that its ed-ucational policy was determined by the ethnichomogeneity of the population, the primitive cul-tural conditions prevailing throughout the Terri-tory, the low population density (which is slightlyover two persons per square kilometre), the rela-tive poverty in natural resources, and the preval-ence of nomadism.

Education in the Territory is under the direc-tion of the Department of Health and Education.The Administering Authority reported that it hadestablished a central consultative EducationalCouncil to study all problems relating to the de-velopment of education; five of its thirteen mem-bers are indigenous persons. In all the administra-tive centres of the Residencies, Educational Com-mittees have been formed to aid needy studentsand to follow educational development. Instruc-tion in the schools is in Italian and Arabic. Thelatter language was favoured by the people ofthe Territory and the Advisory Council ratherthan Somali, which, it was pointed out, has neverbeen developed as a written language; the assist-ance of UNESCO in developing a written formof Somali was recommended by the AdvisoryCouncil.

The Administering Authority reported that6,718 students were enrolled in Somali schoolsduring 1950-51. Most of these were enrolled inthe 70 primary schools (3,286 in day schools, 3,-219 in night schools for adults); of the balance,82 were enrolled in the eleven secondary schools,64 in a one-year teacher-training course, 37 in theSchool of Political Administration, and 30 in anArts and Crafts School, which offered a three-yearcourse in carpentry or mechanics. In addition, 357students were enrolled in Italian primary schoolsand 404 in Italian secondary schools; these schoolsfollow the curriculum of the Metropolitan schoolsand Somali students are admitted after an entranceexamination. Education is free except in the Ital-

ian secondary schools. The Administering Author-ity stated that school attendance figures were no-ticeably lower than enrolment figures, which inturn represented but a small part of the popula-tion of school age.

The government schools had 22 Italian second-ary school teachers, three Italians in the field ofteacher-training, and 40 Italian, 62 Somali and 37Arab and Libyan primary-school teachers. In addi-tion, 31 Italian missionaries taught in primaryschools supervised by the Administration. Of the170 primary-school teachers, 45 Italian and threeArab teachers were certificated. Ail Somali teach-ers in service at the time of the transfer of pow-ers, the Administering Authority observed, wererequired to take special courses; they were thenexamined with respect to their knowledge of gen-eral culture and of the Italian and Arabic lan-guages. The establishment of a regular teachertraining institution was under consideration.

The Central Committee of the SYL claimed(T/Pet.11/14) that before the transfer of powersthere had been in Mogadiscio five special classes forSomali girls but that only one of these Arabic clas-ses was now maintained and the girls were en-trusted to Catholic sisters who taught them theItalian language; this, it was stated, constituted athreat to the Moslem beliefs of the girls. The SYLfurther stated that no real educational programmeexisted in the Territory. In reply, the Administer-ing Authority observed (T/908) that in thegirls' schools at Mogadiscio the number of classeshad increased from four to six and the numberof students from 130 to 195; there were fourSomali, two Italian and two Arab teachers forthese classes. Other petitions from the SYLbranches of Schushuban, Hordio, Hafun, and Bar-gal (T/Pet.11/27, 28, 30, 31) complained thatthese localities were denied all educational facili-ties. However, the Administering Authority as-sured the Trusteeship Coucil that pupils were ad-mitted without discrimination to all schools inSomaliland, and that a new school had beenopened in 1951 in Schushuban.

The Administering Authority reported that il-literacy was almost universal in the Territory. Itsfirst efforts in the field of adult education weretherefore being carried out on the primary schoollevel in a few of the populated centres; it plannedto extend adult education to other centres. Theradio station under construction at Mogadisciowould carry educational programmes. Under theUnited States Point Four programme, the Admin-istration had requested trucks with radio-receiving


and moving picture apparatus in order to carryout a mass education programme. The aid ofUNESCO had been requested in order to set upa programme for the long-term improvement ofindigenous education.

The Administering Authority indicated thatmuch of its effort in the field of education wasrelated to the repair and construction of schools,on which it spent 500,000 somalos during 1950.It stated that not all schools were adequatelyequipped but expected that this situation wouldbe remedied within two years. An expenditure of1,065,257 somalos had been allocated for educa-tional services in the 1950-51 budget.

The Trusteeship Council considered that thepreparation of the inhabitants for independencein ten years required a vast educational effort inthe intervening period. Accordingly, it recom-mended that the Administering Authority take allpossible steps to expand educational facilities andraise the standard of education.

3. Tanganyika, Administered by theUnited Kingdom

Tanganyika, the largest of the Trust Territories,has a total area of 362,688 square miles, of which20,000 square miles are water. At the last generalcensus taken in 1948, the population numbered7,408,096 and included 16,045 Europeans, 59,512Asians and 7,332,539 Africans.

a. POLITICAL DEVELOPMENTExecutive authority is vested in the Governor.

He is assisted by an Executive Council, composed,according to the Administering Authority's annualreports,50 of eight senior government officials andfour unofficial members (three Europeans andone Indian). An African member was subsequent-ly appointed to the Council. The Governor makeslaws with the "advice and consent" of an ap-pointed Legislative Council, which consists ofthe Governor as President, fifteen nominated offi-cial members and fourteen unofficial members,of whom four are Africans, seven Europeansand three Indians. The Administering Authoritystated that it intended to increase African mem-bership on the Legislative Council.

The Administering Authority regarded the es-tablishment and development of local governmentinstitutions as the first essential step towards po-litical advancement. In this connexion, it reportedthat a second Provincial Council had been estab-lished during 1950. These Councils, which arecomposed of official members and African, Asian

and European non-official members, possess execu-tive and financial responsibility as well as advisoryfunctions. Further development of such Councilshad been held up at the request of a ConstitutionalDevelopment Committee, pending the completionof its work. The Committee had found evidence,the Administering Authority observed, that doubtswere being expressed as to whether the presentadministrative division of the Territory into eightprovinces offered an ideal basis for local govern-ment development. On the municipal level, theAdministering Authority reported that Dar-es-Salaam, which was raised to the status of a muni-cipality in 1949, now has a council with a mem-bership of 24 representatives of all races and thatplans were under consideration to raise Tanga tothe same status.

With regard to the introduction of a suffragesystem for the election of representatives to theLegislative Assembly and local government bodies,as recommended in the past by the TrusteeshipCouncil, the Administering Authority commentedthat this was an important objective of presentpolicy, but that, so far, any movement in the di-rection of popular representation had been con-fined to tribal areas. Here it had achieved only avarying degree of success and, it was stated, therewas no immediate prospect of the successful in-troduction of any form of secret ballot in theseareas. For the time being, any attempt to estab-lish an electoral system for the appointment ofAfrican members of the Legislative Council, theAdministering Authority continued, would almostcertainly result in the appointment of representa-tives of sectional interests much less in touch with,and responsive to, the needs and wishes of thepeople than the present carefully chosen members.When popular representation in the tribal coun-cils had been fully established, and from them achain of representation through area, district andprovincial councils had been built up, the electionof direct representation to the central legislature

50 United Kingdom, Colonial Office: Report by HisMajesty's Government in the United Kingdom of GreatBritain and Northern Ireland to the General Assemblyof the United Nations on the Administration of Tanga-nyika under United Kingdom Trusteeship for the Year1949 (London: H.M.S.O., 1950; Colonial No. 261),and Report . . . for the Year 1950 (London: H.M.S.O.,1951; Colonial No. 278). For detailed discussions ofthese reports in the Trusteeship Council, see summaryrecords of the ninth session of the Council (6 June-30 July 1951); summaries of the observations ofindividual members are included in the Council's reportto the Assembly (A/1856). For general discussion inthe Assembly concerning conditions in Trust Territories,see pp. 768-72.


could be undertaken with some confidence thatthe views of the masses of the people would findexpression.

The Administering Authority reported that theConstitutional Development Committee, appointedto review the constitutional structure and to makerecommendations for future constitutional de-velopment, had begun its task early in 1950 andwas preparing its report at the end of the year.The Committee had given particular attention tothe question of the elective principle and thefuture constitution of the Legislative Council andprovincial councils.

In a petition (T/Pet.2/95) examined by theTrusteeship Council, the Kenya-African Unionand the East African Indian National Congressreferred to a resolution passed at a mass meetingon 23 April 1950 in Nairobi which deprecated theracial issues allegedly raised by non-official Euro-peans in Tanganyika and Kenya, and condemnedtheir aggressive attitude toward the constitutionalproposals for the Tanganyika Government. Theresolution supported constitutional proposalsgranting equal unofficial representation to Africansand non-Africans on the Legislative Council withprovision for the election of members on a com-mon roll, and stated that these proposals were anecessary step toward the political, economic andsocial progress of the inhabitants of Tanganyika.The petitioners further declared that the inde-pendence and sovereignty of the East Africanterritories was the real solution and requestedthat this be implemented at an early date. TheAdministering Authority stated that the constitu-tional proposals referred to were only tentativesuggestions proposed in a confidential memoran-dum by the Governor to the unofficial membersof the Legislative Council. The Committee onConstitutional Development had decided not totake the government-sponsored memorandum asa basis for discussion. The Committee had col-lected expressions of opinion from all sections ofthe community and it was at liberty to take intoaccount the views contained in the petition. TheAdministering Authority stated, however, thatthese petitioners were not domiciled in and didnot belong to Tanganyika, and that they had madeno attempt to bring their views directly to theattention of the Committee.

The Trusteeship Council noted the completionof the Committee's work and suggested that therelevant published reports be annexed to the an-nual report for 1951. The Council awaited withparticular interest details of the specific proposals

to be adopted by the Administering Authority.These, it hoped, would include a further increaseof African participation in executive and legisla-tive organs. In this connexion, it welcomed theappointment for the first time of an African tothe Executive Council.

The Trusteeship Council indicated its satisfac-tion with the successful operation of the twoProvincial Councils but noted that the setting upof further councils had been deferred. It expressedthe hope that their geographical basis would bedetermined and further councils established assoon as possible, and that the Administering Au-thority would encourage the progressive develop-ment of the regional council system generally.

The Council noted with satisfaction that Afri-can representation on the Dar-es-Salaam MunicipalCouncil had been increased. It considered thatmunicipal councils could become useful instru-ments in fostering the growth of a more repre-sentative form of government and expressed thehope that additional municipal councils would beestablished.

By resolution 377(IX) of 5 July 1951, theCouncil decided to notify the above petitioners ofthese conclusions.

By far the greater proportion of the Africanpopulation of Tanganyika, according to the Ad-ministering Authority, is subject to the systemof "indirect administration". The AdministeringAuthority stated that in essence this system con-sists of leaving the conduct and management oflocal affairs to those who, under established indi-genous constitutions, are the recognized tribalauthorities and who command the respect andconfidence of the people. These Native Authori-ties, established by the Governor, are grantedstatutory recognition and authority in specificfields. In 1950, the Administering Authority re-ported, there were 435 Native Authorities, whichvaried considerably in size, in efficiency, in themanner in which they were developing and intheir willingness to accept changes and reform.In recent years the Administration introducedprinciples of popular representation in certainareas by the establishment of councils at the di-visional, area and district levels. These councilsare being added to or substituted for the tradition-al tribal institutions. The Administering Author-ity reported that its policy for the future develop-ment of the council system aimed, first, at theseparation of judicial from executive functions,secondly, at the transference of legislative func-tions from the individual Native Authority to the


council or to the chief-in-council and, thirdly, atthe subordination of the executive to the council.Progress in the first two aims, it stated, had alreadybeen achieved in certain districts. The administra-tion was also trying to associate disconnectedtribal units into larger federations or amalgama-tions with the objective of ultimately achieving aterritorial unification of all tribal groups.

The stress laid by the Administering Authorityon the development of responsible local govern-ment institutions was considered sound by theTrusteeship Council. It also noted with satisfac-tion the intention of the Administering Authorityto confer greater responsibilities on these institu-tions. However, the Council recommended that theAdministering Authority accelerate the modifica-tion of indigenous tribal institutions along moredemocratic lines and intensify its efforts amongthe less developed tribes in order to avoid exces-sive unevenness in political development. It alsourged the Administering Authority to proceedas soon as possible with the establishment of localgovernment training facilities.

The civil service in the Territory was describedby the Administering Authority, which reportedthat, in 1950, 11,355 Africans were employed inthe administrative services, apart from the HighCommission staff, as compared with 2,207 Euro-peans and 1,040 Asians. The positions they oc-cupied, however, were generally minor positions.The Administering Authority stated that its aimwas to provide training facilities so that it couldappoint Africans to high administrative posts assoon as they became qualified. Noting the situa-tion, the Trusteeship Council recommended thatincreased opportunities be offered to Africans inthe junior service and that the AdministeringAuthority consider the provision of a comprehen-sive programme of specialized training, either onan in-service basis or by sending a greater numberof promising junior officials to institutions ofhigher education in the United Kingdom, EastAfrica or elsewhere for further training.

b. INTER-TERRITORIAL ORGANIZATION

A number of services of Tanganyika continuedto be administered jointly with those of the con-tiguous British Territories of Kenya and Ugandaunder the East Africa (High Commission) Order-in-Council, 1947. The normal powers of govern-ment with respect to the common services areexercised by the High Commission, which consistsof the Governors of Kenya, Uganda and Tanga-

nyika. The principal services concerned are: de-fence; industrial planning; railways and harbours;air transport; the collection of customs and incometaxes; post, telegraphs and radio communications;research, meteorology and statistics. The EastAfrica Central Legislative Assembly, with an un-official majority, has legislative power, subject tothe assent of the High Commission, with respectto the common services.

The Inter-Territorial Organization, which hasin the past been studied by the Trusteeship Coun-cil, was further examined during 1951 by theStanding Committee on Administrative Unions.The Committee's observations (T/915) were ap-proved by the Trusteeship Council. The Commit-tee studied the papers (T/C.1/L.2; 3; 5 & Corr.1;6; 7 & Add. 1; and 8) submitted by the Adminis-tering Authority and by the Secretariat, and ex-amined the relevant parts of the reports on theadministration of Tanganyika during 1949 and1950. The Committee paid particular attentionto the Central Legislative Assembly whose ex-istence was provided for only until 31 December1951. On 30 April 1951, the Administering Au-thority informed the Committee that the futureof this Assembly was then under consideration.At that time, the question had been consideredonly by the Tanganyika and Uganda LegislativeCouncils, which had unanimously adopted motionsproposing that the Order-in-Council be amendedto provide for the extension of the Central Legis-lative Assembly for a further period of four years.The Administering Authority agreed to informthe Committee in due course of any decisionsreached affecting Tanganyika.

These statements were noted by the Committeeand the Trusteeship Council. The Council ex-pressed the hope that the Administering Authoritywould examine and weigh public opinion inTanganyika before revising the provisions relatingto the composition and functions of the EastAfrica Central Legislative Assembly. It recalled, inthis connexion, that in 1950 its previous Commit-tee on Administrative Unions had been of theopinion that a more explicit procedure than thatcontemplated by the Administering Authority forascertaining public opinion would seem to bedesirable.

The Standing Committee on AdministrativeUnions also undertook a detailed study of thefunctions of the East Africa Industrial Council,which controls the licensing of certain manu-factures, and of the effect which the inter-terri-torial arrangements might have upon the economic


development of Tanganyika. The Committee wasof the opinion that continued care should beexercised in order that inter-territorial and in-dustrial planning did not prejudice the economicdevelopment of Tanganyika and that the policiespursued in the licensing of new industries did notdiscourage economic initiative. It noted that, inthe granting of a licence to Nyanza Textiles In-dustries Limited to establish a textile mill inUganda, the Industrial Council had issued a declar-ation prohibiting until 1954 the establishment ofcotton yarn or cotton piece goods industries inany of the East African territories, includingTanganyika. This declaration derived its authority,as far as Tanganyika was concerned, from anOrdinance (no. 72 of 1949) authorizing theCouncil by declarations of this character to protectnew industry from uneconomic competition dur-ing the early stages of its development. ParallelOrdinances were enacted in the other two terri-tories. The Committee took special note of astatement by the representative of the Administer-ing Authority that no applications for licences toestablish a cotton spinning or weaving industryin Tanganyika had been received or were knownto be pending at the time of the declaration. Boththe Committee and the Trusteeship Council, how-ever, stated that they intended to examine withparticular care the future operations of the EastAfrica Industrial Council under this legislationwith a view to safeguarding the interests of theTrust Territory.

The Standing Committee considered certaindiscussions in the Central Legislative Assemblyregarding co-operation between the East AfricaInter-Territorial Organization and the CentralAfrican Council, on which Nyasaland and North-ern and Southern Rhodesia are represented. Itnoted the adoption of a resolution for closer co-operation in the field of communications anddefence, and that the African representatives inthe East Africa Central Legislative Assembly hadopposed this resolution. The Committee took noteof the statement of the representative of the Ad-ministering Authority that the Central AfricanCouncil, to which this resolution was addressed,had not yet responded and that, in these circum-stances, the resolution remained inoperative andcould have no effect on the question of the ad-ministrative union affecting Tanganyika.

The Standing Committee examined the Inter-Territorial Organization in the light of the safe-guards enumerated in 1950 by the TrusteeshipCouncil (resolution 293(VII)) as necessary to

protect the Trust Territories and to enable theCouncil to discharge its functions.51 While theannual reports for 1949 and 1950 containedseparate financial, statistical and other data relatingto Tanganyika, as required by the Council, theCommittee noted that some services under theEast Africa High Commission, namely, the EastAfrican Posts and Telegraphs Department andthe East African Railways and Harbours Adminis-tration, are so closely integrated that it was im-practicable to give separate financial figures inthese fields for Tanganyika alone. The Councilnoted a statement by the representative of theUnited Kingdom that the Secretary of State forthe Colonies would be pleased to receive futureVisiting Missions to Tanganyika if they shouldcare to call on him in London, and that the Chair-man or Administrator of the East Africa HighCommission would be glad to receive VisitingMissions to Tanganyika should they be passingthrough Nairobi and care to call on him and makethe acquaintance of the principal officers of theHigh Commission. It noted that no informationexisted which would suggest that the boundariesof Tanganyika had not been maintained. Finally,it noted that, according to the information con-tained in the annual reports, expenditures on theadministration, welfare and development of Tanga-nyika from 1948 until the end of 1951 would notbe less than the total amount of public revenuederived from the Territory.

c. ECONOMIC DEVELOPMENTTanganyika is essentially an agricultural country

with few industries, and those are mainly con-cerned with processing raw materials. Its potentialmineral wealth is great and mining is expected toincrease in importance. A geological survey ofareas likely to contain minerals was begun in1949, the Administering Authority reported. Thevast majority of the indigenous inhabitants arepeasant agriculturalists concerned mainly with thegrowing of foodstuffs for their own consumption.In addition, according to the Administering Au-thority's reports, they produce certain crops andcommodities for export, including most of thecotton, hides and skins and about two thirds ofthe coffee output. Many also take paid employ-ment. A labour enumeration in September 1949showed that, in addition to 34,661 persons incasual daily work, 439,327 indigenous personswere engaged in regular paid employment, 179,-014 of them in agriculture.

51

See p. 778.


Total exports during 1949 were valued at£21,647,530; the chief export items, comprising87 per cent of the total, were: sisal (valued at£11,111,000), cotton lint (£2,060,000), coffee(£1,461,000), diamonds (£1,010,000), hides andskins (£625,000) and gold (£620,000). Forestproduce was valued at £4 million in 1949, of which£567,501 represented exports. The livestock ofthe Territory, numbering some 6 million head ofcattle and over 5 million sheep and goats, are alsoan important source of wealth.

The Administering Authority's report for 1950indicated a further increase in trade; during thatyear, imports totalled £27,940,838 and exports £25,-956,074, more than twice the total volume for1947. In 1950, the total value of agricultural pro-duction was £34,198,657; the value of mineralsexploited was £1,802,403 (provisional).

Sisal, by far the largest revenue-earner for theTerritory and the most important commercialcrop, is almost entirely in the hands of non-in-digenous producers. The sisal industry is the mainemployer of African labour in the Territory. In1950, an estimated 126,723 Africans were em-ployed on 180 sisal plantations. Mining is alsodeveloped almost exclusively by private non-in-digenous enterprise.

Revenue and expenditure from both the terri-torial and development plan accounts amounted to£10,327,408 and £9,459,540 in 1949 and to anestimated £12,656,508 and £12,651,388 for 1950.Actual revenue for 1949 on the territorial accountalone amounted to £8,585,646 and expenditure£7,772,440; revenue for 1950 was estimated at£8,492,095 and expenditure £8,486,975. The ma-jor portion of the revenue comes from taxes,which in 1949 contributed 71 per cent of thetotal revenue. Of this percentage, about twothirds was from indirect taxes, mainly customs andexcise duties, and one third from direct taxes,including the income and non-Native poll tax,and the Native house and poll taxes.

The Administering Authority stated that itseconomic policy was directed at increasing thewealth of the Territory by the maximum develop-ment of its natural resources so as to raise thegeneral standard of living. The policy aimed atfitting the indigenous inhabitants gradually toparticipate to the full in the functions at presentalmost exclusively performed by the non-indi-genous inhabitants in the general economy. Atpresent the participation of the indigenous in-habitants was still largely confined to the produc-

tion of primary agricultural products and animalhusbandry. These activities were being increasing-ly organized on a co-operative basis. In 1950,there were 114 co-operative marketing societieswith a total membership of some 75,000. Of these,107 were engaged mainly with the bulking ormarketing of members' export crops (90 withcoffee); the local value of crops they handledduring the 1949-50 season exceeded £2,000,000.

However, co-operative principles were not yetsufficiently understood and appreciated by theindigenous inhabitants for application to estateownership and management, the AdministeringAuthority indicated, with reference, in particular,to the operation of ex-enemy estates. Eventually,as had been recommended by the TrusteeshipCouncil, such agricultural properties might beturned over to indigenous inhabitants, probablyas co-operative enterprises but, for the time being,the common benefit of the inhabitants could bebest secured, the Administering Authority stated,by maintaining developed agricultural propertiesat maximum production.

The Trusteeship Council recommended that theAdministering Authority consider adopting agree-ments in connexion with the exploitation ofTanganyika's natural resources similar to the part-nership agreement existing between the Territoryand the forestry concessionaires in the Rondoplateau area.

With respect to co-operatives, the Council notedwith satisfaction the increase in their numberand membership, as well as a provision in the1951 financial estimates for a proposed Inter-Territorial Training Centre for Co-operative Staffs.It expressed the hope that the Administering Au-thority would continue to encourage this develop-ment, particularly by increasing the facilities fortraining Africans in the principles and techniquesof co-operative enterprise.

The measures being taken to improve the terri-torial economy were outlined by the AdministeringAuthority. Rising costs, altered priorities and newrequirements, the Administering Authority stated,made it necessary in 1950 to revise the ten-yeardevelopment and welfare plan form £19,186,000,as approved in 1946, to approximately £24,450,-000, to be spent during 1951-56, mainly on thedevelopment of natural resources, water and com-munications, the provision of adequate storage,and office and housing accommodation to meetthe increasing needs of the Territory. Total ex-penditure under the plan rose from £851,000 in


1948 and £2,216,000 in 1949 to approximately£3,800,000 in 1950. The Trusteeship Councilnoted the revision of the amount of the plan withsatisfaction. It considered sound the emphasisplaced upon such basic problems as communica-tions, water supplies and natural resources, andexpressed the hope that the Administering Au-thority would continue its policy of placing par-ticular emphasis on those projects of direct benefitto the indigenous inhabitants. It recommendedthat the Administering Authority study the possi-bility of promoting schemes for providing cheaphydro-electricity.

The Territory's total needs cannot yet be metfrom local production, the Administering Author-ity reported, and from time to time serious foodshortages occur, due to crop failures. Of the totalestimated area of some 9,750 square miles undercultivation in 1950, about 90 per cent was devotedto non-export crops for consumption within theTerritory, it was stated. The area in any one yearunder other than Native crops amounts to about1,750,000 acres. Although about half of the landarea of Tanganyika is potentially available foragriculture, much of this is closed to cultivationbecause of insufficient water supplies and theprevalence of the tsetse fly, with consequent popu-lation pressure, overstocking and overgrazing incertain areas. Extensive plans in progress for thereclamation of these lands were described by theAdministering Authority. Two of the most im-portant rehabilitation schemes are in the Sukuma-land and Mbulu districts. The Sukumaland scheme,covering some 20,000 square miles, affects nearlyone million people. Its aim is to organize a con-trolled re-distribution of population and stock innewly-opened up areas which have been clearedof the tsetse fly and provided with water. Afterresettlement, it is planned to effect improvementsin methods of agriculture and animal husbandry.The Administering Authority stated that thesevere drought in 1949, which resulted in a lossof 600,000 head of cattle, had temporarily easedthe cattle population problem in this area. Underthe Mbulu scheme, some 600 square miles of newcountry had been made available by 1950. TheTrusteeship Council commended the Administer-ing Authority on its efforts to relieve populationpressure in certain parts of the country by openingup areas formerly closed to cultivation and soli-cited further information on the progress of thevarious resettlement and development schemes.

Other steps being taken to improve agriculturalconditions included experiments in mechanized

cultivation, the establishment of agricultural creditfacilities, an investigation into systems of shiftingcultivation, the development of properly organ-ized marketing schemes and improvements instock and feeding, and the training of an increas-ing number of agricultural instructors. The Ad-ministering Authority indicated that progress inagriculture, as in other fields, had been limited bythe shortage of trained personnel. The improve-ment of African agricultural methods was con-sidered by the Trusteeship Council of great im-portance for the economic future of Tanganyika.It expressed the hope that the AdministeringAuthority would further strengthen the agricul-tural services, and particularly those bringing di-rectly to the farmer the benefits of scientific ex-perimentation and improved agricultural methods.

The progress of the groundnut scheme, under-taken by the Overseas Food Corporation to bringunder cultivation hitherto uninhabited and unpro-ductive land, was disappointing. The Administer-ing Authority indicated that lack of suitable me-chanical equipment, heavy bush and inadequaterainfall contributed to a decision to revise thescheme in 1949 from its original target of2,400.000 acres to 600,000 acres. A further revisionin 1950 limited farm areas to units of 1,500 to6000 acres, rather than units of 30,000 acres asenvisaged in the original plan.

The policy of the Administering Authority withregard to land tenure in the Territory makes pro-vision for occupancy by both indigenous and non-indigenous inhabitants but places first importanceon the needs of the former. A certain amount ofnon-Native settlement is permitted by selectedpersons if it is thought likely by the Administra-tion to be conducive to the economic developmentof the Territory and if it is unlikely to impair theinterests of the indigenous inhabitants. In 1950the total area of land alienated to non-Africansamounted to 3,121 square miles. The Administer-ing Authority emphasized that the interests of theAfrican inhabitants would be fully preserved andprotected, but explained that there were largeareas of the Territory which were capible of de-velopment within a measurable time only by non-indigenous effort. It stated that in certain areas,where population pressure had been aggravatedby excessive alienation during the German ad-ministration, lands would be made available tothe indigenous inhabitant. However, the realsolution of the problem of indigenous populationpressure lay in the opening up of new areas, itwas stated.


d. SOCIAL DEVELOPMENT

The Administering Authority reported thatstandards of living had improved, although thecost of living continued to rise. A special commit-tee was appointed in 1950 to study the wholeproblem of rising costs and to make recommenda-tions.

In urban areas, the shortage of housing was stillan acute problem, the Administering Authoritystated. Under the revised ten-year plan, £1,230,-000 had been allocated for African urban housing.It was estimated that this would cover the cost ofthe building of more than 800 houses a year bythe Administration. At its ninth session, the Trus-teeship Council noted with concern the currentshortage of African urban housing, but noted withsatisfaction the substantial increase in the housingallotment, and urged the Administering Authorityto accelerate the implementation of the plan.

Although the laws of the Territory recognizeno discrimination on grounds of sex against thewomen of any race, the Administering Authorityobserved that the social status of African womenwas generally regarded by indigenous custom asinferior to that of men. However, it stated thatthe women themselves, as the more conservativemembers of the community, were often the lesseasily convinced of the need for change. The Coun-cil, while appreciating the reasons given by theAdministering Authority for the comparativelybackward status of women, urged it to continuetaking all possible steps, particularly in the educa-tional field, to improve their status.

Reporting on the labour situation in Tanga-nyika, the Administering Authority estimated thatin December 1950, 360,250 indigenous personswere in paid regular employment, 79,000 less thanin 1949. Of this total, approximately 27,000 Afri-can workers came from outside the Territory. Thenumber of workers from Tanganyika employedin the Rhodesias and in the Union of South Africawas estimated to be as high as 11,500, and, inaddition, some went to Kenya and Uganda. Thelevel of wages throughout the Territory was ris-ing, according to figures supplied by the Admin-istering Authority. In 1949, there were seven reg-istered trade unions in the Territory, five of themAfrican. The largest and most active of the Africantrade unions, the Dock Workers and StevedoresUnion, was dissolved in 1950 following a strike.During 1950 there were 50 industrial disputesinvolving 7,444 workers and resulting in the lossof 11,093 man-days of work.

Figures on labour offences that year revealedthat, of 58 employers convicted of offences againstthe Master and Native Servants Ordinance, sevenwere imprisoned, 41 fined and ten bound over;of 189 employees convicted mainly for unlaw-fully leaving an employer's service or refusing orneglecting to fulfil contracts of service, 120 wereimprisoned, 61 fined, and eight bound over. Re-ferring to a Council recommendation for theabolition of penal sanctions for breach of labourcontracts, the Administering Authority pointedout that the only remaining reservation in theapplication of the International Labour Conven-tion concerning Penal Sanctions (IndigenousWorkers) was that relating to the unlawful de-parture of a servant from his employer's servicewith intent not to return. It explained that exist-ing conditions did not justify the withdrawal ofthis reservation as yet, but the matter was underconstant review. It was also planned eventually toabolish child labour, as recommended in the pastby the Council, but this was not considered prac-ticable at the present stage. In the meantime, theregular employment of children was reduced to aminimum, the Administering Authority stated,and the regulations governing their employmentwere most precise.

At its ninth session, the Council urged the Ad-ministering Authority to pay particular attentionto the provisions relating to social welfare andconditions of employment of African labourers, sothat the industrial development of Tanganyikawould result in benefit and not in hardship to thepeople. It also recommended that the Administer-ing Authority pay careful attention to the wagesand working conditions of Tanganyikans em-ployed outside the Territory, and that it makesuitable arrangements for protecting their inter-ests. The Council suggested that this might includea service to assist and advise on matters relatingto the terms and conditions of their employment.

In reply to repeated Council and General As-sembly recommendations for the abolition ofcorporal punishment, the Administering Authoritystated that it was anxious to achieve this objectivebut that, after viewing the problem objectively,it had reluctantly come to the conclusion thatthe power to award corporal punishment mustfor the present be retained for a few serious of-fences such as rape, defilement of girls undertwelve years of age, robbery with violence andbrutal assault. It pointed out that an advance hadbeen made in regard to juveniles by the recentestablishment of a probationary system, which,


although at present applied to only a small partof the Territory, would be extended as rapidlyas circumstances permitted. The Administrationwould keep the whole subject under constantreview and ensure that progressive steps weretaken when possible towards the abolition ofcorporal punishment. During 1950, the Admin-istering Authority reported, the subordinate courtsimposed 482 sentences of whipping, of whichseventeen were quashed by the High Court andtwo were not carried out as the accused weremedically unfit; 359 of those sentenced werejuveniles. The Native courts in 1949 imposed 979sentences of whipping. Corporal punishment mayalso be given in prisons as a disciplinary measurefor mutiny, or incitement to mutiny, or for per-sonal violence to a prison officer; four personsreceived such punishment in 1950.

The Council noted with concern that, althoughcertain measures had been taken to reduce thenumber of offences for which corporal punish-ment may be imposed by the courts, this form ofpunishment still existed in the Territory. TheCouncil also reaffirmed the view expressed inGeneral Assembly resolution 440(V) that meas-ures be taken immediately to bring about thecomplete abolition of corporal punishment in allTrust Territories where it still existed and theCouncil's sixth session recommendation that cor-poral punishment be abolished as rapidly aspossible. To this end, it recommended that theAdministering Authority earnestly consider sus-pending the operation of the relevant provisionsof the law, pending their complete repeal. Inparticular, it urged the Administering Authorityto press on with the expansion of the probationsystem as the means of securing, at the earliestpossible date, the abolition of the caning ofjuvenile delinquents.52

Describing the medical and health services, theAdministering Authority reported that in 1950there were 135 government-registered and li-censed physicians and 166 non-official physicians,as compared with 127 and 139, respectively, in1949. There were in 1950 a total of 142 qualifiedgovernment nurses and 191 non-official qualifiednurses, as compared with 128 and 140, respect-ively, in 1949. There were four official and twelvenon-official dentists in 1950, as compared withthree and ten, respectively, in 1949. The Adminis-tering Authority felt that the recent improvementin obtaining medical officers would continue in1951. It pointed to the continuing increase inbudgetary appropriations—from £746,015 in 1949

and £871,089 in 1950 to £1,144,925 in 1951. Inaddition to recruitment of personnel, its plansincluded, as an immediate target, one hospital bedper thousand of the major population groups, thetraining of Africans, and the integration of gov-ernment and Native administration dispensariesinto the medical service. A new hospital was beingbuilt and the building of another, a 400-600 bedgroup hospital in Dar-es-Salaam, was to start in 1951.

The considerable increase in expenditure formedical services was noted with satisfaction by theTrusteeship Council, which expressed the hopethat there would be further budgetary increases tomeet the need for the expansion of medical servi-ces of all kinds and, in particular, increased provi-sion for the training of indigenous medical staff.

e. EDUCATIONAL DEVELOPMENTThe schools in the Territory are run by the

Government and by voluntary agencies; primaryschools for African children are also conducted byNative Authorities. The continued provision ofseparate schools for African, Asian and Europeanchildren was considered necessary by the Adminis-tering Authority, which pointed out that thequestion of language alone, as far as primaryschools were concerned, made inter-racial educa-tion an impracticable proposition at the presenttime. Education is free at all government primaryschools and teacher-training centres. Varying feesare charged at most other schools.

The Administering Authority reported that itsten-year plan for African education had beenrevised in 1950. The aims of this plan, it wasstated, are: (1) to make the most profitable use ofall available resources in expanding the schoolsystem; (2) to ensure that the greatest possiblenumber of children may become literate in theshortest possible time; (3) to provide the meansto prevent their relapsing into illiteracy; and(4) to give a greatly increased number of pupilsthe advantage of secondary and higher education.Under the revised plan, the target figure for thenumber of African children in village schools by1956 was raised from 250,000 to 310,000, asagainst a total of 176,641 children in such schoolsin 1950. The revised estimated total cost of capitalworks for the ten-year period was £1,423,000, asagainst the original estimate of £500,000. Underthe original plan it was estimated that by 1956the annual recurrent expenditure would reach$557,525; the revised estimate was £1,461,000.

52 For subsequent consideration by the General Assem-

bly, see pp. 784ff.


The other main points covered by the revisedproposals include: (1) the gradual replacementof district schools by middle schools; (2) increasedprovision for girls' education; (3) provision fortechnical education, including the establishmentof additional trade schools; (4) a slight increase,to 3,720, in the target number of secondary schoolpupils (2,405 in 1950); (5) increased provisionfor agricultural work in the schools; (6) anincrease in teacher-training facilities; and (7) anincrease in the provision for inspection and super-vision.

The Administration stated that, as the first steptoward the provision of adequate training facilities,the government vocational training school atIfunda was in the process of being built up toits capacity of 500 students. Apart from the ten-year plan, the Administering Authority reported aproject to establish a natural resources school, withfacilities for some 450 African students. The Ad-ministering Authority stated that, in carrying outthe development plan, difficulties had been exper-ienced in obtaining teachers and skilled supervisorystaff for the school-building programme and inobtaining certain materials and equipment.

The Council noted with satisfaction the policy,objectives and increased financial provision con-tained in the revised ten-year plan for Africaneducation, and expressed the hope that the revisedprogramme would be adopted and implemented ifpossible before the target date, having regard tothe ultimate objective of providing education forevery child in the Territory. The increases in thenumber of teachers during 1949 and 1950 werenoted by the Council. It expressed the hope thatthe revised ten-year plan would result in an accel-erated expansion of training facilities to alleviatethe lack of an adequate corps of teachers, and in

the establishment, as recommended in the plan, oftwo or three trade schools similar to the one atIfunda. It hoped that particular attention wouldbe given to the need for increasing facilities totrain Africans for the administrative and technicalservices. The Council also commended the Admin-istering Authority for the projected establishmentof the natural resources school.

There are no facilities for higher educationwithin Tanganyika, according to the Administer-ing Authority's reports, but those students whoqualify for entrance to Makerere College, Uganda,are eligible for government bursaries covering thefull cost of their time at the College. Aid is alsoextended for qualified students who wish to studyin the United Kingdom. In 1950, a total of 42African students were studying at Makerere Col-lege, compared with 34 in 1949, while fourteenwere studying in the United Kingdom in 1950, asagainst fifteen in 1949. Under the developmentplan, it was hoped to have 200 students attendingMakerere College by 1956.

The Council noted with interest the increase to42 in the number of students from Tanganyikaat Makerere College, but it considered this numberstill insufficient to meet the Territory's needs andurged that every effort be made to increase thenumber of students qualified for higher education.

With regard to mass education, the Administer-ing Authority reported that during recent years amovement towards mass literacy had sprung upin several areas. Plans had been made for theestablishment of broadcasting facilities at Dar-es-Salaam. The Council, referring to the usefulnessof such facilities for mass education and culture,stated its hope that these plans would be imple-mented as rapidly as possible to provide experiencefor the expansion of such services in the Territory.

E. CONDITIONS IN TRUST TERRITORIES IN WEST AFRICA

Eight annual reports submitted by the Admin-istering Authorities on the administration of thetwo Cameroons and two Togolands during both1949 and 1950 were examined by the TrusteeshipCouncil at its ninth session, held from 5 June-30 July 1951.53 In examining these reports, theCouncil took into consideration the observationsmade by the Council's first Visiting Mission sentto these Territories in 1949 (T/798), and, inconnexion with the educational conditions, the ob-servations of the United Nations Educational, Sci-entific and Cultural Organization (UNESCO) onthe annual reports for 1949 (T/903).

During 1951 the Council also examined, at itseighth and ninth sessions, a total of 143 petitionsconcerning these Territories.54 Some were personalrequests or complaints, while others were of amore general nature; most of the latter related tothe unification of the Ewe people or of the twoTogolands.

Conditions in each Territory and the conclu-sions and recommendations reached by the ma-


5 4 For list of petitions examined during 1951, seetable, pp. 791-98.


jority of Council members with respect to the an-nual reports and to petitions of a general natureare summarized below in connexion with the in-dividual Territories. The Ewe and Togoland uni-fication problem is treated separately in this Chap-ter.

1. Cameroons, Administered by theUnited Kingdom

According to the Administering Authority's an-nual reports,55 this Territory, which is divided bya gap of some 45 miles near the Benue River,covers a total area of 34,081 square miles. In 1950it had an estimated indigenous population of1,050,000. The inhabitants of the north and centralhalf of the Territory include some 107,000 non-Moslems, referred to as pagans, who live in unset-tled districts having a total area of 1,150 squaremiles. No persons are permitted to enter an un-settled district except those indigenous to it, pub-lic officiais and persons authorized to do so, theAdministering Authority stated, because of thedanger of inter-village warfare during the dry sea-son.


The Trust Territory continued to be adminis-tered as an integral part of the adjoining BritishProtectorate of Nigeria, sharing a common con-stitution, budget and administrative and technicalservices. The whole of Nigeria is divided intothree broad regions—the Eastern, Western andNorthern Provinces. The southern portion of theTrust Territory, under a Commissioner of theCameroons, consists of two self-contained prov-inces, Cameroons and Bamenda, which form partof the Eastern Provinces of Nigeria; the Cam-eroons Province is divided into three divisions,and Bamenda, previously administered as a singlelarge division, was also divided into three in 1950.The northern portion of the Trust Territory con-sists of the self-contained Dikwa Division andparts of two other divisions with headquarters inNigeria; these three divisions form part of threedifferent Nigerian provinces, which in turn formpart of the Northern Provinces of Nigeria.

In 1949 and 1950 the Cameroons was not di-rectly represented in either the existing ExecutiveCouncil, which is advisory to the Governor ofNigeria, or in the central Nigerian LegislativeCouncil, which controls expenditures and legisla-tion for the joint administration. While seats werenot specifically reserved for Cameroonians in the

existing regional organs for the Northern andEastern Provinces—the Houses of Chiefs and ofAssembly for the Northern Provinces and theHouse of Assembly for the Eastern Provinces—a few Cameroonians were nevertheless membersof these organs.

Constitutional and administrative reforms, de-signed to give Nigerians and Cameroonians amore responsible part in the management of theiraffairs, were worked out during 1949 and 1950in discussions beginning at the village level andending in a general conference for the whole ofNigeria and the Cameroons. The proposed newConstitution, the Administering Authority stated,contained specific provisions for the representa-tion of the Trust Territory in the proposed newcentral and regional organs.

Under the reform proposals, as described by theAdministering Authority, the central ExecutiveCouncil would be replaced by a Council of Min-isters, with responsibility for shaping governmentpolicy and directing executive government action.In the new Council, which, it was intended, wouldhave an African majority, one of the four Minis-ters from the Eastern region would come from theCameroons. It was proposed to replace the Ni-gerian Legislative Council by an enlarged Houseof Representatives to consist of 148 members, ofwhom 136 would be elected by the regional As-semblies. According to the Administering Author-ity, at least four of the 34 representatives to beelected by the Eastern House of Assembly wouldcome from the southern Cameroons.

In addition to extending the powers and broad-ening the membership of existing regional or-gans, the reforms proposed to establish regionalexecutive councils. The Eastern House of Assembly,under the contemplated reorganization, would con-sist of about 80 members elected indirectlythrough divisional electoral colleges; elected mem-bers from the southern Cameroons, it was stated,

55 United Kingdom, Colonial Office: Report by HisMajesty's Government in the United Kingdom of GreatBritain and Northern Ireland to the General Assembly ofthe United Nations on the Administration of theCameroons under United Kingdom Trusteeship for theyear 1949 (H.M.S.O., London, 1950, Colonial No. 262),and Report . . . for the year 1950 (H.M.S.O., London,1951, Colonial No. 276). For detailed discussions ofthese reports in the Trusteeship Council, see summaryrecords of the ninth session of the Council (5 June-30 July 1951); summaries of the observations of indivi-dual members are included in the Council's report tothe Assembly (A/1856). For general discussion in theAssembly concerning conditions in Trust Territories, seepp. 768-72.


would total thirteen, at least one of whom wouldbe placed on the new Eastern Regional ExecutiveCouncil. The northern Cameroons would continueto be represented in the Northern House of Chiefsbut no specific provision was made for its repre-sentation in the Northern House of Assembly,which would include, for each province, at leasttwo members indirectly elected through provincialelectoral colleges.

The Trusteeship Council considered the newConstitution a development of fundamental sig-nificance, and expressed the hope that the Admin-istering Authority would make every effort toexplain to the inhabitants the procedures and sig-nificance of the elections in which they would beentitled to participate and that it would takespecial precautions to ensure that the interests ofthe Trust Territory were not prejudiced nor sub-merged by those of Nigeria.

After noting that the Trust Territory's repre-sentatives in the Nigerian Central House of Rep-resentatives were to be elected not by the repre-sentatives of the southern Cameroons in the Ni-gerian Eastern House of Assembly alone but bythe elected members as a whole, the Council askedthe Administering Authority to give careful con-sideration to the need for ensuring that the mem-bers representing the Cameroons in the CentralHouse truly reflected the wishes of the inhabit-ants.

The various aspects of the administrative inte-gration of the Trust Territory with Nigeria, pre-viously examined by the Trusteeship Council,were again examined in 1951, particularly in re-lation to the safeguards enumerated by the Coun-cil in 1950 (293(VII) ).56 The conclusionsreached by the Council's Standing Committee onAdministrative Unions (T/918) were adopted bythe Council. Accordingly, the Council noted thatthe new Constitution promulgated for Nigeria andthe Cameroons had been drawn up after the in-digenous inhabitants, including those of the vari-ous sections of the Trust Territory, had first beenconsulted. With respect to the safeguards whichit considered necessary for the exercise of its sup-ervisory functions and for the protection of theTrust Territory, the Council noted that the Ad-ministering Authority had stated in its 1950 re-port that it had improved, and would try to im-prove further, the statistical and other data on theTrust Territory, in order to give the Council afull and accurate picture of local conditions. Inthis connexion, the Council noted the separatedata actually provided in the reports for 1949 and

1950, which included, inter alia, data on adminis-trative staff, estimated revenue and expenditure,taxation, commerce and production. It further ob-served that the Visiting Mission to the Cameroonsin 1949 had visited Nigeria; that no informationexisted which would suggest that the boundariesof the Trust Territory had not been maintained;and that, according to information supplied by theAdministering Authority, expenditures for thethree fiscal years 1946-49 had not been less thanthe public revenue derived from the Trust Terri-tory. Referring to revenue and expenditure for1949-50, however, the Council noted a surplus ofrevenue amounting to £310,000, of which £165,-000, representing the collection of back taxes, wasa non-recurrent item.

Native Authorities, functioning under the sup-ervision of administrative and technical officers,are responsible for local government. In the Cam-eroons, the Administering Authority stated, theseinstitutions vary from a few relatively strong he-reditary chiefs, with councils of elders and othertraditional leaders, in the north and in Bamenda,to a comparatively large number of clan councilsin the south. They are given statutory power tomake and apply local rules and also, under guid-ance, to prepare and administer local budgetswhose revenues are derived mostly from indigen-ous taxes and grants from the central government.

The most important Native Authorities in thenorth are those headed by the paramount chiefsof Adamawa (with headquarters in Nigeria) andDikwa. The Administering Authority reportedthat it had continued its efforts to broaden thebase of these largely hereditary structures by thecreation and development of more representativecommittees and councils.

The Administering Authority stated that in thesouthern part of the Cameroons there was during1949-50 a noticeable strengthening and mobiliza-tion of literate opinion, the development of whichwas vital to political and social progress. The mainmotive force, it observed, appeared to have comefrom the leaders of the Cameroons DevelopmentCorporation Workers' Union, who in 1949 suc-cessfully combined the numerous asociations ofliterate and semi-literate young men into the Cam-eroons National Federation, which the Adminis-tering Authority considered a potentially potentfactor in the development of political conscious-ness.

The Administering Authority found the NativeAuthorities in the Cameroons Province still un-

56 See p. 778.


satisfactory. They had small resources and gener-ally showed little wish to pool them by federation.They tended to be guided by the more narrow-minded sections of the population and to be outof sympathy with the younger and better-educatedelements forming the Cameroons National Fed-eration.

Enabling legislation was passed in 1950 forestablishing in the Eastern Provinces of Nigeriacouncils on more modern lines as a means of giv-ing increased responsibility to the people in theirlocal affairs. However, this legislation had not yetbeen applied in the southern Cameroons; the Ad-ministering Authority stated that its success woulddepend mainly on the emergence in sufficientnumbers of a responsible and well-informed liter-ate class prepared to devote itself to local publicaffairs, but felt that it would be unreasonable tohope for immediate and spectacular results. TheAdministering Authority referred to a scheme, atMan-o'-War Bay, in Victoria, for training poten-tial leaders in community development,57

The Trusteeship Council considered the forma-tion of the Cameroons National Federation a po-litical development of importance. It expressed thehope that this and similar organizations would begiven every encouragement to play a constructiverole in the political life of all parts of the Terri-tory.

The Man-o'-War Bay scheme, the Council felt,should assist in developing a more constructiveand responsible community spirit among the in-habitants and should promote more rapid progressin local government. It was particularly interestedin learning the results of this scheme and whethersimilar schemes would be established in otherareas.

The most important changes in the admnistra-tive and technical staffing reported in the TrustTerritory in 1949 and 1950 were the appointmentof the Commissioner of the Cameroons and an in-crease over 1948 in the number of other officersposted in the southern section of the Territory.

The latter included a Resident (appointed toBamenda), a co-operative officer, a geological sur-vey officer, two produce officers, one medical offi-cer and two cattle control officers. The staff in thenorthern parts of the Territory was smaller, theseareas being otherwise served by the staffs of theNigerian provinces to which they belong. In ad-dition, the Administering Authority reported thateach Native Authority in the Trust Territory hadits own technical and administrative staffs, all Af-ricans, with, in general, lower qualifications and

rates of salary than civil service personnel. TheAdministering Authority stated that its policy wasto appoint Africans to senior posts in the civilservice as quickly as qualified candidates could befound, but that Cameroonians, few of whom hadthe necessary educational qualifications, would beunable for a considerable time to fill the highestadministrative and technical posts. In 1950, it re-ported, one Cameroonian was appointed to thesenior service and nine others were selected forvarious scholarships and training schemes. TheCouncil expressed the hope that an expandingscholarship programme would result in an in-creasing number of Cameroonians in the seniorservice.

Judicial organization in the Territory comprisesthe Nigerian Supreme Courts and magistratescourts, which administer the laws of the Territoryand English law; and the indigenous tribunals, thejudicial branch of the Native Authorities, whichpimarily administer local indigenous law and cus-tom and, in practice, handle the great majorityof cases involving Africans only. Administrativeofficers have access to the indigenous courts andpower of review over them; they are also oftenappointed as magistrates for areas not readily ac-cessible to professional magistrates. The Admin-istering Authority reported that a comprehensiveenquiry into the working of indigenous courts inNigeria and the Cameroons was being carried out.

Referring to recommendations made by theTrusteeship Council at its sixth session in 1950concerning frontier regulations with respect to theboundary between the Cameroons under Britishand that under French administration,58 the Ad-ministering Authority expressed full sympathywith the Council's view that the inhabitants ofthe French-administered Territory should have easyaccess to the Cameroons under British administra-tion and stated that it would consult with theFrench Government to that end whenever neces-sary. It reported that there was already a steadycoming and going between the southern parts ofthe two Trust Territories. Over 2,000 workersfrom the Cameroons under French administrationwere employed on the plantations of the British-administered Cameroons and there were certainfrontier concessions for goods moving across theborder.

At its ninth session, the Trusteeship Council

4/70) and the French Cameroons Welfare Union

57 See p. 717.

58 See Y.U.N., 1950, p. 711.

considered petitions from Joseph Ngu (T/Pet.-


(T/Pet.4/71 & Add.1) relating to the treatmentof immigrants in the Cameroons under Britishadministration, as well as a request, from theKumzse, the traditional assembly of the Bamiléképeople in the Cameroons under French adminis-tration (T/Pet.5/92), for the removal of the cus-toms barrier and the liberalization of currencyregulations between the two Territories. TheFrench Cameroons Welfare Union, referring to itsprevious petition (T/Pet.4/19-5/8), stated that,despite the assurances given the Council that im-migrants from the French-administered Cameroonsenjoyed equal privileges with the local inhabitantsof the Cameroons under British administration,and the Council's subsequent decision to take noaction (172(VI) ),59 the "real political situation"as regards immigrants was far from satisfactory.It complained that they were inadequately repre-sented in the Native Authority Councils and Na-tive Courts of Victoria Division, were excludedfrom political participation under the new Ni-gerian Constitution and were discriminated againstin appointments to the public service. They alsocomplained that their children were discriminatedagainst in the granting of scholarships. As tax-payers, they claimed the right to vote, and re-quested that their Union be constituted as a pri-mary electoral unit. They protested against thefrontier between the two Cameroons and requestedthe Council to conduct a referendum at an earlydate to ascertain the wishes of the indigenouspopulation regarding the abolition of frontier con-trols and unification of the Cameroons. Mr. Nguclaimed that the immigrants from the Cameroonsunder French administration had strongly pro-tested against their exclusion from voting, and herequested that the Government revise the electoralprocedure.

Th Administering Authority maintained (T/-L.200), however, that these immigrants sharedsimilar civic rights with the indigenous popula-tion. It explained that the status of British-pro-tected person or citizen was a necessary qualifica-tion for voting under the new Nigerian Constitu-tion. The former status could be acquired only bybirth or descent, the latter by naturalization. TheAdministration planned to publicize among theimmigrants the naturalization procedure, whichrequired five years' residence before application.The creation of a special electoral unit for immi-grants was considered impractical, as they werescattered.

On 17 July 1951, the Council adopted a resolu-tion (383(IX) ) on the petitions from Mr. Ngu

and the French Cameroons Welfare Union. It re-quested the Administering Authority to furnish,in its next annual report, additional informationon the status of immigrants from the Cameroonsunder French administration and urged that everyeffort be made to ensure that the petitioners un-derstand the procedure for acquiring naturaliza-tion and the right to vote. The Council furtherdecided to re-examine these petitions when it hadreceived the requested information.


The Administering Authority stated that itseconomic policy aimed at raising the generalstandard of living and encouraging every form ofeconomic development among the indigenous in-habitants who, it was intended, would play anincreasing part in directing the course of theeconomy of the Territory.

It stated that the Territory's economic prosper-ity depended primarily on the southern plantationlands, which produced bananas, in particular, andalso rubber and palm produce, the principal ex-ports from the Cameroons. Otherwise, the Terri-tory's economy was based on peasant agricultureand cattle raising, both of which the Administer-ing Authority was attempting to improve by pro-viding technical personnel and services, experi-mental stations, and agricultural demonstrationfarms. In 1950, a scheme for the free distributionof artificial fertilizer was started in Dikwa. Apartfrom subsistence farming, indigenous farmers en-gage in some production for export.

Several products are sold through NigerianMarketing Boards, set up to ensure orderly mar-keting and stable prices for cocoa, palm produce,cotton and groundnuts in Nigeria and the Cam-eroons. These Boards, which, except for the CocoaBoard, were established in 1949, provide fundsfor research and development in their respectiveproducing industry and for the economic benefitof the people in the areas of production.

Over half a million cubic feet of timber andfirewood were produced from the Territory's for-ests in 1949 and 1950; some of this was exported.

Except for palm produce and rubber processingfactories in the plantation areas, and local cottagecrafts, there was no industry in the Territory. Nomining had yet been undertaken.

The Administering Authority reported that fourBritish trading companies operate in the Trust

59

See Y.U.N., 1950, p. 709.


Territory. They sell imported goods in bulk tomiddlemen who, in turn, act as distributors topetty traders, as buying agents for export com-modities. Co-operative societies were encouragedby the Administering Authority as a means ofpromoting indigenous participation in trade andindustry. The number of such societies, however,had decreased from 46 in 1948 to 32 in 1950,with a total membership of 1,474, of which 1,269(as compared with 2,287 in 1948) were mem-bers of cocoa marketing societies. A co-operativeofficer was stationed in the Victoria Division dur-ing 1950.

Although credit facilities in Nigeria made avail-able adequate capital for small-scale development,the Administering Authority stated, Cameroonianswere slow to make use of these facilities until theend of 1949. In 1950, six loans were made toCameroonians, five for agricultural purposes andone, of £1,000, to assist the expansion of a brickand tile industry. In 1949, on the initiative of dis-trict officers, three brick factories were startedwith Native Authority funds and handed over asgoing concerns to private African enterprise; asimilar venture in leather manufacture was not sosuccessful. In general, however, the AdministeringAuthority saw few immediate possibilities for thedevelopment of local industries; staff to train thepeople in improved methods was not available andthe potential market was small.

By far the largest plantation enterprise in theTerritory is the statutory Cameroons DevelopmentCorporation, set up to operate for the benefit ofthe Trust Territory about 395 square miles ofplantation lands alienated in the south during theperiod of German administration. These landswere declared Native lands and leased to theCorporation, which has developed some 78.000acres. According to the Administering Authority,the operations of the Corporation will in duecourse be taken over by selected representativesof the people. It reported that the number ofAfricans from the Cameroons on the Corporation'snine-member board of directors had increased tothree, the second appointed in 1949 and the third,formerly the president of the Corporation's Work-ers' Union, in 1950. The Corporation providesscholarships and other training schemes to fitAfricans for responsible posts, and by the end of1949 had appointed 32 Africans to senior posts.

Its principal products are bananas, oil, palmproduce and rubber. A steady increase in produc-tion of these products was reported. The Corpora-tion's output of bananas, its chief product, amount-

ed to 3,226,723 stems in 1949, of which 2,927,539stems were shipped. The total export from bothCorporation and commercial estates in 1950 was4,680,419 stems, about the same as in 1949, andmight have exceeded six million stems but forserious storm damage. The Administering Author-ity anticipated further increases in the Territory'sbanana production, to a target of eight to ninemillion stems a year. The bananas are sold througha commercial firm to the United Kingdom Minis-try of Food, at prices which have increased from£27 per ton in 1948 to £32 per ton in 1950.

According to the Corporation's annual reportsand financial statements, which have been annexedto the Administering Authority's annual reportsfollowing a request by the Trusteeship Council,the Corporation's working profits rose from £343,-397 in 1948 to £352,378 in 1949. Of theseamounts, £209,000 and £260,000, respectively,were set aside for income tax payments; TheCorporation allocated reserves of £100,000 in 1948and £80,000 in 1949 for staff welfare, whichincludes housing, hospital and educational facili-ties, and for hurricane risks. In addition, theCorporation declared surplus profits, amountingto £54,352 from its second year of operations in1948 and £22,544 from its operations in 1949.As required by law, these profits were made avail-able to the Governor of Nigeria so that he couldapply them for the benefit of the people of theTrust Territory. The Administering Authorityreferred in its reports to local development com-mittees of Cameroonians, organized to makerecommendations on the distribution of the Cor-poration's profits. It also indicated that a standingconsultation committee, representing the Corpora-tion and its workers, had been established to con-sider and make recommendations on labourproblems.

The Trusteeship Council noted with approvalthat three indigenous inhabitants of the Territoryhad been appointed as members of the Corpora-tion. It expressed the hope that the AdministeringAuthority would progressively increase indigenousparticipation in the Corporation as well as inother economic bodies.

The policy of elaborating projects for spendingthe Corporation's profits in full consultation withlocal development committees also met with theCouncil's approval. It found this policy in accord-ance with one of its earlier recommendations sug-gesting that measures be taken to explain moreclearly to the people the significance of the Cor-poration and to accelerate their participation in


its operation and control. The Council urged theAdministering Authority to extend the use of localdevelopment committees and expressed the hopethat the implementation of development projectswould be accelerated in areas where such commit-tees were well established.

Although the Cameroons and Nigeria shareda common budget, detailed tables of estimatedCameroons revenue and expenditure were madefor the Trust Territory and included in the annualreports. Revenue and expenditure for the fiscalyear 1949-50 amounted to £1,053,000 and £743,-000, respectively, as compared with £519,000 and£647,000 in 1948-49 and £241,000 and £471,000in 1946-47. It was estimated that 35.4 per cent ofthe total expenditure in 1949-50 was on adminis-tration, 43.4 per cent on economic developmentand 21.2 per cent on social development.

The Administering Authority stated that theimprovement in 1949-50 was almost entirely dueto the increasing prosperity of the plantations ofthe Cameroons Development Corporation and ofanother important banana estate operated by acommercial company. Income tax of 9 shillings inthe £ from these organizations and from othercompanies, together with customs duties, wereestimated at some £815,000. This included taxarrears of £165,000 which, if paid the year before,would have created a surplus for that year as well.The Administering Authority pointed out that theexceptionally high tax return could scarcely beexpected to be repeated for the year 1950-51, butit believed that revenue was likely to be main-tained at a figure far above that of 1948-49. TheTrusteeship Council was informed during its ninthsession that the Nigerian Government had decidedthat the 1949-50 and future surpluses should bepaid into a Cameroons Development Fund to bespent entirely on the Territory rather than appro-priated to repay past subsidies required fromNigeria. It had already been decided that the firstsurplus of £310,000 should be made available forroad construction in the Cameroons.

The Trust Territory also benefits from expendi-ture under the ten-year development plan forNigeria and from grants made by the NigerianMarketing Boards for cocoa and palm produce, aswell as from the surplus profits of the CameroonsDevelopment Corporation, which, as noted above,are allocated entirely to the Trust Territory. Inaddition, the Native Authorities have their ownbudgets, with revenues (estimated at £249,124 for1950-51) derived mostly from indigenous taxesand expenditures devoted to local works and

services. Expenditure on administration, the largestsingle item, varies from about 9 per cent of thetotal in the south to about 22 to 28 per cent inthe north.

The Trusteeship Council noted the great im-provement in the economic situation of the Terri-tory. It found it particularly encouraging that theTerritory, largely due to the successful operationof the Cameroons Development Corporation, hadshown a surplus of revenue over an increasedexpenditure. At the same time, the Council drewthe attention of the Administering Authority tothe precarious nature of the Territory's economyin its over-dependence upon a single crop andexpressed the hope that efforts to establish a morediversified economy would be intensified. In par-ticular, it recommended that the AdministeringAuthority explore every possibility of industrialdevelopment, encourage the co-operative move-ment, and promote the use of modern and scientificmethods in agriculture.

The Administering Authority considered thatthe greatest single problem in the Territory wasthe provision of adequate road communicationsthrough its difficult terrain, without which therecould be no real progress in political and socialdevelopment. The Administering Authority there-fore regarded as one of its most important achieve-ments in 1949 the construction of 180 miles ofnew road. Moreover, the development plans for theTerritory gave priority to communications, par-ticularly to the building of an extensive roadsystem. The Administering Authority informed theTrusteeship Council of road programmes outsidethe Territory which it considered of perhaps evengreater potential importance: the first road link-ing the Territory with eastern Nigeria had beenbrought into use in 1949, and a second veryimportant road link was within six miles ofcompletion. There was still no road linking thenorthern and southern parts of the Trust Territorydirectly and the roads into the Cameroons out ofnorthern Nigeria were generally dependable formotor traffic only in the dry season. Machineryand personnel were being gathered, however, tobuild an all-weather north-south road, with perma-nent bridging and all-weather connexions withnorthern Nigeria and the Cameroons under Frenchadministration, at an estimated cost of £2 million.

The Trusteeship Council commended the Ad-ministering Authority for its road constructionprogramme and for allocating the whole of the£310,000 thus far placed in the Cameroons Dev-elopment Fund for road development. It expressed


the hope that the Territory's continued economicprosperity would enable implementation at anaccelerated pace of the programme for a basicnetwork of all-weather roads. In particular ithoped that there would be no undue delay inconstructing the road link between the northernand southern sections of the Trust Territory.

Of the Territory's 34,081 square miles of land,about eleven or twelve square miles are held bythe Government and about 460 square miles, mostof which was alienated in the southern Cameroonsduring the German regime, are held by theCameroons Development Corporation, tradingcompanies, missions and non-indigenous inhabi-tants. All other lands, as well as the 395 squaremiles leased to the Corporation, have been declaredNative lands, which the Governor of Nigeria isrequired by law to hold and administer for theuse and common benefit of the people of theCameroons. The Administering Authority statedthat non-Natives may acquire a legal interest inland only by a grant of a right of occupancy,subject to prescribed conditions and to rental.

Problems resulting from the alienation of landsin the south formed the subject of a number ofpetitions which have been examined by the Trust-eeship Council. The most important of the landclaims were those made since 1946 by the BakweriLand Committee to the effect that lands nowoperated by the Cameroons Development Corpora-tion had been taken illegally by the Germans fromthe Bakweri people. The Bakweri spoke of theirconsequent hardships and asked for the return oftheir lands. A programme for the controlled andassisted resettlement of the Bakweri on landsexcised from the Corporation's plantations andother measures proposed by the AdministeringAuthority and the Corporation to solve theBakweri problem met with the approval of theTrusteeship Council in 1950. The Council ex-pressed the hope that the Bakweri would co-operate fully in implementing these plans. It alsorecommended that increased efforts be made toexplain to the Bakweri that the ex-enemy landshad in fact reverted to the Cameroonians, in whomownership was now vested (174(VI)).60

At its ninth session the Council considered anew petition (T/Pet.69 & Add.1) from theBakweri Land Committee. The petitioners statedthat they had resolved not to co-operate with theAdministering Authority in its resettlement pro-gramme until it recognized the Bakweri people asthe sole owners of the lands now operated by theCorporation. They contended that the Bakweri

lands could not be justly owned by the wholeTerritory while the rest of the land was not beingoperated in the interest of every inhabitant. Theyrequested that the rents on the lands be paid tothem and not to the Governor of Nigeria, andthat all missionary societies and trading firms beinformed that the Bakweri people, through theGovernor, might demand the lands held by suchbodies, on the payment of adequate compensation.

The Administering Authority observed (T/-L.200) that the Land Committee continued tomaintain its original position which would operateto the detriment of the long-term development ofthe Trust Territory, but that the viewpoint ofyounger and more intelligent elements among theBakweri gave the Administration hope that theBakweri attitude might change in the future. TheAdministering Authority added that, during dis-cussions with the Bakweri representatives, thelatter had made it clear that they did not intendtheir attitude to mean that they were disinterestedin the other development and welfare plans. Inparticular they welcomed the scheme for trainingpotential leaders in community development,which, the Administering Authority stated, hadbeen pushed forward vigorously on land and inbuildings made available by the Corporation atMan-o'-War Bay, Victoria.

The Trusteeship Council approved of the stepstaken by the Administering Authority to carry outits 1950 recommendations, but noted with concernthe Administering Authority's inability up to thattime to persuade the Bakweri to abandon theirclaim to outright ownership of the lands leasedby the Corporation and to accept the resettlementscheme. It expressed the hope that various develop-ment projects in the area, such as the Man-o'-WarBay scheme, would result in a changed atmosphereand would lead the Bakweri both to a realizationthat the operations of the Corporation wouldimprove their situation and to their acceptance ofthe resettlement scheme.

By resolution 382(IX) of 17 July 1952, theCouncil drew the Bakweri Land Committee's atten-tion to these conclusions as well as the Council'sconclusions with respect to the Cameroons Dev-elopment Corporation (see above). At the sametime, it reiterated its previous resolution (174(VI)) concerning the Bakweri land problem.

c. SOCIAL DEVELOPMENTThe Administering Authority stated that social

welfare measures in the Trust Territory aimed at60

See Y.U.N., 1950, pp. 705-6.


improving the living conditions, health and edu-cation of the people, and it gave details in itsannual reports of the services and facilities avail-able for these purposes.

The Administering Authority reported that suc-cessive wage increases, amounting to 83 per centsince January 1947, and other measures taken bythe Cameroons Development Corporation, such asits rehousing programme and expanded welfareand medical services, had all helped to raise theplantation workers' standard of living. Elsewhere,it stated, a rise in the standard of living mustdepend largely on efforts for improving peasantproduction and communications to enable produceto be brought more quickly and cheaply tomarket.

It explained that the only large wage-labourforce in the Cameroons was in the southern part.Out of 36,500 wage-earners in 1950, some 24,800were employed in agriculture. Most of thesebelonged to the Cameroons Development Corpora-tion Workers' Union. The Administering Author-ity indicated that the question of wages was aprincipal issue in all except one of the elevenindustrial disputes during 1949 and 1950. Themost serious of these was a strike late in 1949which lasted for 27 days and involved over 17,000workers on the Cameroons Development Corpora-tion plantations. The Corporation had raised itsbasic wage rates from 1s. 3d. a day in 1947 to1s. 6d. a day in 1948. In 1949, in the course ofnegotiations with the workers, the Corporationoffered a basic increase of 3d. a day, but this offerwas rejected by the union and a general strike wascalled. The settlement of the strike, the Adminis-tering Authority reported, included an increase inthe basic rate of pay to 1s. 10d. a day, the awardto all workers of a goodwill bonus of 5s., theestablishment of a permanent consultative worker-management committee and the opening of planta-tion shops for the sale of essential goods at con-trolled prices.

The Trusteeship Council noted the steps takento increase wages and reduce the prices of con-sumer goods and expressed the hope that it wouldbe possible, particularly by increasing labourproductivity, to continue to increase real wagesand to raise the standard of living. It consideredthe manner in which the leadership of the Came-roons Development Corporation Workers' Unionhad matured and the current satisfactory labourrelations of the Corporation encouraging and ex-pressed the hope that the influence of such respon-

sible leadership would be increasingly extended toother labour unions.

The Ex-Servicemen's Union, Victoria, referringto its previous petition,61 stated (T/Pet.4/68)that, in spite of the Administering Authority'sstatement to the contrary, Native Authorities werenot allowed to grant loans to ex-servicemen. Thepetitioners asked that their loan requests be givensympathetic consideration, and that the Govern-ment establish hostels, clubs and reading-roomsfor them. They claimed, also, that the CameroonsDevelopment Corporation had embarked on ascheme of mass dismissals of ex-servicemen, andasked that the Corporation and the Civil Preven-tive Services be advised by the AdministeringAuthority to "temper with justice their presentpolicy of discrimination against the ex-servicemenin respect to employment".

The Administering Authority observed (T/-928) that clubs were not formed because ex-servicemen were scattered, and that the CameroonsDevelopment Corporation was providing increas-ing welfare facilities. Loan applications fromex-servicemen capable of engaging in business oragriculture, it assured the Trusteeship Council,would receive most sympathetic consideration andthree grants-in-aid had in fact been given. TheAdministering Authority considered it impossible,however, to give job priority to unqualified ex-servicemen when other suitable candidates wereavailable, and stated that dismissals might haveoccurred.

By resolution 381(IX) of 17 July 1951, theCouncil called the attention of the petitioners tothese observations, and, reiterating its resolutionon the previous petition, the Council expressed thehope that the Administering Authority's efforts tohelp homecoming servicemen would be continuedand, if necessary, increased so that any legitimategrievance on their part might eventually be met.

The Administering Authority stated that insecuring human rights and fundamental freedomsfor the inhabitants it was guided by the Charterand the Universal Declaration of Human Rights.It aimed in particular at protecting freedom ofexpression and religion and freedom from arbi-trary arrest.

It reported that indigenous religions and alsoMohammedanism and Christianity were practisedin the Territory. In 1950, 161 missionaries wereactive in the Territory; they claimed some 108,000

61

See Y.U.N., 1950, p. 711.


converts to Christianity in the south and some8,000 in the north. They were not permitted in the"unsettled" districts, however, and were restrictedfrom preaching in public places in the Moslemareas of the north.

The Administering Authority stated that slaverypractices no longer existed in the Territory.Although child marriage existed, the Administer-ing Authority observed, in practice no-one expect-ed a child wife to perform her marital functionsuntil her parents considered her old enough. In1949, the Trusteeship Council had recommendedthat child marriage be expressly forbidden by law.In this connexion, the Administering Authorityreported that in 1950 the Nigerian Governmenthad introduced draft legislation which would havemade it a criminal offence for a man to havecarnal knowledge of a wife under 15 years of agebut that this provision aroused strong opposition,mainly on the part of Moslem chiefs and repre-sentatives, and was deferred.

According to the Administering Authority'sreports, fines and imprisonment are the usualforms of legal punishment in the Cameroons, butpenalties of whipping may be imposed by theSupreme Court and the magistrates' courts forcertain serious crimes such as rape and robberywith violence or, at the court's discretion, on anymale under 17 years of age. Whipping may alsobe imposed by the Native courts in criminal casesand by the Moslem courts in the northern areasfor homicide in certain circumstances, fornicationand drinking wine.

The Administering Authority reported thatfourteen adults and 21 juveniles during 1949, and25 adults and eleven juveniles during 1950 weresentenced to whipping by the magistrates' courtsin the southern Cameroons and that 88 sentencesduring 1949 and 60 during 1950 were meted outby Native courts. Referring to Trusteeship Counciland Assembly resolutions calling for the abolitionof corporal punishment, the Administering Au-thority stated that it was its policy to abolishcorporal punishment as soon as possible but that,under the present primitive conditions, it wouldnot yet be in the public interest to go furtherthan had already been done in reducing thenumber of offences subject to whipping. It hadundertaken a further review of the position in1950, and stated that further progress towards thedeclared aim would be made as rapidly as localcircumstances permitted. Noting this statement,the Council urged that measures be taken imme-

diately to bring about the complete abolition ofcorporal punishment.

The medical services available in the Cameroonsare provided by the Medical Department of theNigerian Government, Native Authorities, reli-gious missions and the Cameroons DevelopmentCorporation.

In 1950, the Administering Authority reported,there were fifteen doctors in the Territory, ascompared with ten in 1949 and seven in 1948;seventeen nursing sisters, as compared with sevenin 1949 and two in 1948; and the total medicalpersonnel numbered 396 in 1950 as comparedwith 187 in 1948. In addition, some of the medicalstaff of Nigeria gave part of their services to theCameroons. The Administering Authority statedthat the increase in personnel in the Cameroonswas largely due to the expansion of the staff ofthe Cameroons Development Corporation.

In the Cameroons Province, the Governmenthad hospitals at Victoria (140 beds), Kumba andMamfe and the Cameroons Development Corpor-ation had one main hospital (125 beds), a cottagehospital, two area hospitals and five subsidiaryhospitals. In the Bamenda Province there was agovernment hospital and a mission hospital. TheNative Authorities had 21 dispensaries in the twoprovinces and the Corporation had 23. A medicalfield unit also operated in this part of the Territory,and a loiasis research project was in progress. TheAdministering Authority stated that work on thefirst hospital for the north, a 48-bed institutionbeing built at Mubi, had been held up in 1950because of water supply difficulties, but that goodprogress was hoped for in 1951. In the meantime,the northern areas were serviced by a few dis-pensaries, three leprosy treatment centres and, partof the time, by a medical field unit, as well as byfacilities in Nigeria. According to the Administer-ing Authority, most sick people in the northobtained assistance from "medicine men" beforereporting to dispensaries.

Estimated Government expenditure on medicaland health services, it was reported, had increasedfrom £30,000 in 1946-47 to £52,000 in 1949-50,and Native Authorities expenditure from £7,300to £13,500. The Cameroons Development Corpor-ation spent in 1950 some £46,000 as the annualrecurrent cost of its medical services. Its expendi-ture on hospital and dispensary buildings totalledabout £20,000 and was expected to amount tobetween £150,000 and £200,000 by the middle of1953.


The Trusteeship Council noted that the expan-sion in medical facilities and staff had primarilyaffected the southern part of the Territory. Itexpressed approval that medical field units hadbeen operating in the nothern areas and that thenew hospital was nearing completion. It recom-mended, however, that the Administering Author-ity make a sustained effort to improve facilities,particularly in the north, by such means as provid-ing more mobile medical units and local dis-pensaries, and by the training of more Africanmedical assistants.


The educational system, the Administering Au-thority reported, was under the control of theDirector of Education of Nigeria, with central andregional advisory boards. Some local educationcommittees, designed to give local communitiesincreased control over education in their areas, hadbeen established. There were government, NativeAuthority and mission schools in the Cameroons.The Administering Authority stated that it co-operated with the missions and actively encouragedthem; most of their schools, it added, were nowapproved in accordance with specific requirementslaid down by the Administering Authority, andthey were aided by Government funds, amounting,in 1950, to £45,897.

Estimated public expenditure on education in1950 totalled £108,259, including £26,060 byNative Authorities, as compared with £86,942 in1949; the 1950 expenditure amounted to over70 per cent more than that of 1948. No figureswere available for the considerable expenditure bymissionary societies. The Administering Authorityindicated that in the south school fees at varyingrates were charged in all except vernacular schools.In the north, elementary education was free.

In 1950, according to the Administering Au-thority's report, the Territory had 296 primaryschools, attended by 28,333 pupils in the southand 1,818 pupils in the northern areas; twosecondary schools, with an enrolment of 262; andsix teacher-training schools, with 284 pupils. TheAdministering Authority stated that 244 of theschools, including the two secondary schools, wererun by missions, and 60 by the. Government andthe Native Authorities. There were 33 primaryschools and one teacher-training school in thenorthern areas; the balance were in the south.Enrolment of school-age children had increased in1950 to 23.8 per cent in the south and 1.3 per

cent in the north, while attendance had increasedby about 20 per cent since 1948. Referring to theneed to persuade parents to let their children makefull use of the existing facilities, the AdministeringAuthority pointed out that enrolment in the exist-ing primary schools in the south could be almostdoubled.

The Administering Authority stated that in thesouthern areas the supply of elementary certificatedteachers for junior primary schools was now equalto the demand, but that there was still a scarcityof higher elementary certificated teachers forsenior primary schools. In the northern areas thesupply of indigenous teachers was still inadequatebut the opening of the first teachers' trainingcentre in the north in 1950 should ease the situa-tion, the Administering Authority considered.

It reported that eight further scholarships to theUnited Kingdom and the University College atIbadan, Nigeria, were awarded in 1950, includingsix by the Cameroons Development Corporation.The Corporation had awarded eighteen secondaryschool scholarships, in addition to those forchildren of its employees, and there were 52 hold-ers of Native Administration scholarships atsecondary schools in the Territory.

The Administering Authority considered tech-nical education the most urgent educational needof the Territory. It stated that a Trade TrainingCentre being built at Ombe, near Victoria, at atotal cost of £90,000 was expected to open inmid-1951; it would have a staff of ten Europeaninstructors and would offer five-year apprenticeshipcourses for, among others, carpenters, bricklayersand electricians.

The Trusteeship Council expressed satisfactionat the increased school attendance and at thegreater emphasis given to teacher-training, tech-nical training, the building of schools and theexpansion of the scholarship programme forsecondary and higher education. Nevertheless, itnoted that school attendance, particularly in thenorthern areas, was low compared with the totalnumber of school-age children. In view of the vastneeds of the Territory for trained indigenous per-sonnel, the Council recommended that educationalfacilities be further expanded, that the teacher-training programme be extended and that increas-ing access to secondary and higher education beprovided for the growing number of qualifiedstudents from the Trust Territory.

The Administering Authority estimated the per-centage of illiteracy outside the Victoria Divisionat over 90 per cent, and even higher among


women and elderly persons. It reported that theCameroons Development Corporation was con-ducting 64 literacy classes in 32 centres located inthe labour camps. Pupils were given two-hourlessons twice a week; the total peak enrolment in1950 was 1,012. In the northern areas, the Admin-istering Authority stated, free classes for adultswere given by headmasters of all elementaryschools three times a week. The AdministeringAuthority also stated that there was a good attend-ance of adult women at domestic science centresprovided by the Government, Native Authoritiesand missions.

The Trusteeship Council commended the workof the Cameroons Development Corporation in thefield of adult education. It recommended that everypossible additional means of promoting adult edu-cation be encouraged. In this connexion, it notedwith approval a proposal of the AdministeringAuthority to establish a literature bureau for WestAfrica and expressed the hope that, by supplyingreading material for Africans, this bureau wouldassist them in retaining or advancing the degreeof literacy achieved in school.

2. Cameroons, Administered by France

This Territory covers an area of 432,000 squarekilometres. According to the Administering Au-thority's annual reports,62 the African populationnumbered 2,997,164 in January 1950. The Euro-pean population rose from 7,000 on 1 January1949 to 12,021, at the end of 1950. Of the 12,021,a total of 8,988 were French.


The Territory continued to be administered asan "Associated Territory" forming part of theFrench Union and governed by the legislative andexecutive organs of the French Republic and theFrench Union in France. The Cameroons parti-cipates in these organs through elected representa-tives. The Administering Authority informed theTrusteeship Council during its ninth session thatthe number of deputies elected by the Cameroonsto the French National Assembly had increasedfrom three to four. The Cameroons retained threeelected representatives in the Council of theRepublic, five in the Assembly of the FrenchUnion and two in the Economic Council of theUnion.

The indigenous inhabitants of the Cameroons,the Administering Authority indicated, have re-ceived the status of citizens of the French Union

and consequently enjoy the rights and fundamentalfreedoms set forth in the 1946 Constitution estab-lishing the Union. At the same time they are freeto choose their personal status either as "personsunder French trusteeship administration", exempt-ing them from certain duties, including militaryservice, or, by naturalization, as French citizens.

The Trusteeship Council noted that associationof the Territory with the French Union was notwithout its benefits, but nevertheless consideredthat the Administering Authority should continueto preserve the separate status of the Territorywith a view to its ultimate self-government orindependence.

The chief of the local Administration is theHaut Commissaire, who is vested with the powersof the Republic and is responsible to the Ministerof Overseas France.

The Territory's local Representative Assembly,which has been functioning since 1947, has powerto make decisions on a number of matters, in-cluding all those relating to State land, and topass the Territory's budget. It may also addressmotions and opinions to the Government on allexcept political matters. The Assembly is com-posed of sixteen members elected by a college ofFrench citizens and 24 members elected by a col-lege of particular categories of Africans. Followingrecommendations of the Trusteeship Council foran extension of the Assembly's powers, particularlyin the legislative field, the Administering Author-ity reported in 1949 that the local Governmentwas consulting the Assembly on all matters of anyimportance, even beyond the requirements of therelevant legislation. To consider reforms, however,was premature, the Administering Authority stat-ed. In 1950 it reported that it was shaping itspolicy along the lines desired by the Council andthat draft legislation had been prepared to extendthe Assembly's powers to apply, particularly, to thegranting of concessions and the alienation ofland. It was also possible that there would be aredistribution of seats.

The Trusteeship Council approved of the Ad-ministering Authority's stated intention to enhance

62

France, Rapport annuel du Gouvernement français àl'Assemblée générale des Nations Unies sur l'administra-tion du Cameroun placé sous la tutelle de la France,année 1949 and Rapport . . . année 1950. For detaileddiscussions of these reports in the Trusteeship Council,see summary records of the ninth session of the Council(5 June-30 July 1951); summaries of the observationsof individual members are included in the Council'sreport to the Assembly (A/1856). For general discus-sion in the Assembly concerning conditions in Trustterritories, see pp. 768-72.


considerably the powers of the Assembly and toincrease the proportion of indigenous members.It expressed the hope that the legislation underconsideration would be adopted and that theAdministering Authority would inform the Coun-cil in its annual report for 1951 of the changesthat had been made in the powers and functions ofthe local Representative Assembly.

The Administering Authority reported that thenumber of persons registered in the two electoralcolleges which elect representatives from theCameroons to the French National Assembly andthe local Representative Assembly had increasedfrom 39,576 in February 1947 to 116,000 inFebruary 1951. It subsequently informed theTrusteeship Council, during the ninth session, thata new step towards universal suffrage had beentaken. The elections to the French Parliament inJune 1951, it stated, had been governed by a newelectoral law of 23 May 1951 and the total numberof registered electors had increased to 503,000, ofwhom 271,000 had voted.

The substantial increase in the number ofregistered voters was noted with approval by theTrusteeship Council, which expressed the hopethat the Administering Authority would progres-sively expand the electorate, as it planned, withuniversal suffrage as its objective. In addition, theCouncil recommended that the present dual systembe superseded by a single electoral college.

The Administering Authority reported thatthere had been a decentralization and regroupingof regions, in an effort to stimulate the politicaldevelopment of the districts concerned. There werenow eighteen regions. The Nkam region, theAdministering Authority stated, had been recon-stituted as an administrative unit in 1950, muchto the satisfaction of the people, many of whomhad petitioned for this in 1949. Four new regions,the Administering Authority observed, had alsobeen formed at the population's request and afterconsultation with the Representative Assembly andlocal councils. Other territorial changes were underconsideration. These included a plan for the reor-ganization of the Councils of Notables, whichassist the local administrators in financial, eco-nomic and social matters. The Administering Au-thority stated that the proposed reform hadalready been applied as an experiment in tworegions, where the Councils of Notables had beenreplaced by Regional Councils with more extensivepowers and enlarged membership, but the planhad not yet received the Representative Assembly's

approval, a prerequisite for its application through-out the Territory.

At the municipal level, the AdministeringAuthority reported, five new mixed communes,with municipal commissions having African ma-jorities, had been established in large populationcentres. The two existing municipal commissions,at Douala and Yaounde, had comprised fourEuropeans and two Africans; an order of 31August 1949, however, changed the compositionof the Douala municipal commission to permitequal representation of Africans and Europeans.The Administering Authority added that the pro-cedure for selecting members of municipal com-missions had been altered; several were elected orappointed by associations or economic bodies andothers elected by members of the municipality.The Administering Authority stated that ways andmeans of adapting a municipal system to theindigenous institutions in the northern areas werebeing studied. It observed that some of the tradi-tional chiefs in the Cameroons opposed democraticreforms; they feared that their own influencewould be diminished and that of the youngerelements enhanced.

The Kumzse, the traditional assembly of theBamiléké people, petitioned (T/Pet.5/92) for theinclusion of all the Bamiléké in the electoral lists,proportional Bamiléké representation in the Repre-sentative Assembly, the replacement of the Coun-cil of Notables by a regional council elected byuniversal suffrage, and the establishment of muni-cipal communes under indigenous mayors. Inanother petition (T/Pet.5/87), the propagandasecretary of the Union des populations du Came-roun at Bamoun complained that the paramountchiefs were appointed members of the Council ofNotables ex officio. The Administering Authorityconsidered that the latter petition was motivatedby political considerations and represented aneffort to claim credit for any reform which mightresult from the Administration's proposal beforethe Representative Assembly to replace the Coun-cils of Notables by elected regional councils(T/AC41/SR.15).

The Trusteeship Council commended the Ad-ministering Authority for its plans to replaceCouncils of Notables by regional councils withmore extensive powers and enlarged membership,and expressed the hope that it would be informedin 1952 of the completion of this reform. TheCouncil also found the municipal reforms com-mendable and expressed the hope that they would


be extended throughout the Territory includingthe northern section. It hoped, further, that themunicipal commissions would soon be composedentirely of elected members and that they wouldbe granted wider powers of deliberation anddecision.

By resolution 393(IX) of 26 July 1951, theCouncil informed the Kumzse that it annuallyexamined the general questions raised in theirpetition and called their attention to all of therecommendations adopted during its ninth sessionconcerning the Cameroons under French admin-istration. On the same date, the Council decided(resolution 388(IX)) to inform the other peti-tioner (T/Pet.5/87) of its conclusions withrespect to regional reforms.

In 1950, according to the Administering Au-thority's annual report, a social service respon-sible for improving the living conditions of thepeople and a statistical service were added to theadministrative services. There were 44.5 per centmore Europeans and 30 per cent more Africans inthe judicial services than in 1949, and 21 and 90per cent more, respectively, in education services.The Administering Authority stated that posts inthe local offices of the treasury and similar specialservices were held, with about four exceptions, byAfricans, and that Africans had become eligiblefor appointment as inspectors and police commis-sioners. It added that the development of educationhad made it possible to raise the basic level ofrecruitment for the competitive examinations forpermanent posts, and it was hoped that in theyears to come Africans leaving secondary schoolsmight be admitted to the higher posts. The Ad-ministering Authority also drew attention to theAct of 30 June 1950, which established the prin-ciple that the remuneration and allowances ofstaff should in no case be based on differences ofrace, personal status, origin or place of recruit-ment. It subsequently informed the Council, atits ninth session, that a course in public adminis-tration had been organized at Yaounde for thetraining of civil servants, mostly Africans, toqualify for higher posts in the Administration.

The Council urged the Administering Authorityto undertake a more comprehensive training prog-ramme to qualify Africans for increasingly respon-sibe government positions and expressed thehope that it would ensure a gradual replacementof Europeans by indigenous inhabitants, especiallyin senior posts.

Describing the judicial system, the Administer-ing Authority reported that in civil cases where

neither of the parties possessed European status orqualified for analogous treatment customary lawwas applied, either by tribunals of the first degreepresided over by Africans or the administrativeheads of subdivisions, or by customary tribunalspresided over by Africans. Other civil cases andall criminal cases were subject to French law andwere brought before French courts presided overby administrative officers serving as justices withordinary powers, or by other judges who, as a rule,were members of the judiciary. The right to areview by a higher court was respected, the Ad-ministering Authority stated.

The Union des Syndicats confédérés du Came-roun petitioned (T/Pet.5/89) for the repeal ofa decree of 19 November 1949 which, it stated,granted heads of sub-divisions the power to im-pose certain penalties. The Union further allegedthat, at the time of its petition, in October 1950,there was not a single Cameroonian magistrate inthe Territory. In reply, the Administering Author-ity maintained (T/AC.41/SR.15) that, takinginto account advisers of the various tribunals, morethan 60 per cent of the magistrates were Came-roonians and there would be more indigenousmagistrates when scholarship students from theTerritory had completed their studies in France.It stated that the judicial system was changing, ascareer magistrates arrived to replace judges ap-pointed temporarily from among the officials.

By resolution 390(IX) of 26 July 1951, theTrusteeship Council drew the attention of theUnion to the Administering Authority's observa-tions and informed it that questions concerningthe administration of justice and the separation ofexecutive and judicial powers were, among othermatters, examined annually by the Council.

The Administering Authority reported thatthere were no violations of order or public secu-rity from 1946 to 1950. In a petition (T/Pet.5/-86) examined by the Council at its ninth session,the Union des populations du Cameroun atMoungo complained against the inhuman oppres-sion of the people by the "militarized police" andforest rangers. These allegations were denied bythe Administering Authority, which stated (T/-AC.41/SR.14) that during two successive enquir-ies by the Administration no specific accusationsof police brutality had been made. The Councilreiterated its hope, already expressed in a resolu-tion (200(VI)) adopted in 1950 after it hadexamined similar complaints, that the Administer-ing Authority would make every effort to ensurecorrect behaviour on the part of the police and


the forest rangers toward the inhabitants andwould punish abuses whenever they were dis-covered (resolution 387(IX) of 26 July 1951).


The Territory's economy is essentially agricul-tural, subsistence crops being grown side by sidewith export crops. The Administering Authorityreported that the initial results of experiments formechanizing land-clearing and planting operationswith respect to food and commercial crops hadproved satisfactory. The problem of supplyingfood to urban centres and work sites, it stated,had been almost solved in 1950 through the ex-tended cultivation of food crops and the expansionof fisheries. Measures were also being taken toimprove the quality of livestock and to preservemeats through drying, smoking, salting andrefrigeration.

The main products of the Territory are cocoa,bananas, coffee, palm kernels and palm oil, timber,groundnuts and rubber, which together accountedfor 216,700 of the 223,929 tons of products ex-ported in 1950. Total exports were valued at 8,169million francs63 and imports (226,000 tons) at10,537 million francs. In 1950, 43,722 tons ofcocoa, valued at 3,997 million francs, were prod-uced and exported, as compared with 48,000 tonsvalued at 3,117 million francs in 1949. TheAdministering Authority reported a continued risein banana production, amounting in 1950 to48,064 tons, of which 11,261 tons were exported;33,000 tons were produced and 2,000 wereexported in 1949. Coffee production and exportsdeclined from 8,190 tons, valued at 690 millionfrancs, in 1949, to 7,653 tons, valued at 1,082million francs, in 1950. According to the Admin-istering Authority's reports, Africans produced allthe cocoa and were taking an increasing part inbanana production, accounting for 35 to 40 percent of the 1950 yield; coffee production wasabout equally divided between Africans and Euro-peans; and rubber, the output of which declinedfrom 2,500 tons in 1949 to 1,610 tons in 1950,was produced exclusively by Europeans. Ground-nuts, the only export product of the north, werealso grown in equal amounts in the south; produc-tion increased from 2,431 tons in 1948 to 4,393tons in 1950, as compared with the pre-war levelof 12,000 tons. Exports of miscellaneous timbertotalled 62,582 tons in 1948, 53,856 in 1949 and67,250 in 1950. The Administering Authorityobserved that, while exports of sawn timberdeclined considerably, there was a steady increase

in its local use—from 22,500 cubic metres in1948 to 35,000 cubic metres in 1949 and 45,000in 1950. It stated that the output of quinine roseto over three tons in 1950, as against 80 kilogramsin 1946, and efforts to extend and improve thecinchona plantations were being intensified.

Almost all the controls imposed during the waron commerical transactions had been abolished,the Administering Authority reported, and onlyvery flexible controls over certain essential prod-ucts had been retained. Although the commercialsystem, based on the trading station with branchesin the bush centres, still prevailed in the north,numerous small businesses had been establishedin the south by Europeans, Lebanese and Africans.A number of agricultural production, marketingand consumer co-operatives also existed in theTerritory. In addition, provident societies, to whichindigenous farmers and stock farmers were re-quired to belong, operated under the direction ofAdministration officials. In 1949, the Territorygranted loans of approximately 28 million francsto assist the operation of these societies. The sameyear, a bureau was set up to supervise co-operativeand provident societies. According to the Admin-istering Authority, co-operatives were still fre-quently under the management of persons withinsufficient training who were neither willing norable to conduct the business properly, but, since1948, the Colonial School at Le Havre, in metro-politan France, had been offering training coursesfor qualified individuals. A new state banking in-stitution, the Credit du Cameroun, with a capitalof 40 million francs, was set up at Douala in May1949 to provide loans for co-operatives, handi-craft enterprises and small and medium agricul-tural undertakings, the Administering Authorityannounced.

The Kumzse, citing three instances of unsucess-ful applications by Africans for trading licenses,contended (T/Pet.5/90) that freedom of tradedid not yet exist in the Cameroons. In a separatepetition (T/Pet.5/92), the Kumzse called for theestablishment of markets in Dschang, Bagoussamand Baugangte. In another petition (T/Pet.96 &Add.1), Kamsi David stated that he had beenrefused a licence because he belonged to theUnion des populations du Cameroun. He main-tained that, contrary to a statement made beforethe Trusteeship Council in 1950, the regulationsgoverning premises for the sale of beverages weredeliberately designed to exclude indigenous inhab-

63 Throughout this section, francs=francs CFA (Colo-

nies françaises d'Afrique).


itants. Mr. David also stated that the Credit duCameroun should grant loans to applicants with-out taking into account their political and otheraffiliations.

The Administering Authority denied the alle-gations made by the petitioners and explained thateach of the applications involved had been refusedon its merits. It further pointed out, with refer-ence to Mr. David's petition, that in N'Kong-samba a larger number of licences for the sale ofbeverages were held by Africans than by Euro-peans.

The Kumzse also petitioned (T/Pet.5/92) forthe development of co-operatives in the Bam-iléké area and for the restoration of the providentsocieties to the indigenous inhabitants. The Ad-ministering Authority, in turn, stated that itsought to encourage the co-operative movement,but that it had had to set up an auditing servicefor the accounts of the co-operatives owing totheir faulty financial management.

By resolutions 391(IX) and 392(IX) of 26July 1951, the Trusteeship Council drew the at-tention of the Kumzse to the Administering Au-thority's observations and stated that the generalquestions raised in the two petitions were annuallyexamined by the Council. In its resolution (396(IX) of 26 July 1951) on Mr. David's petition,the Council reiterated the hope which it had ex-pressed in a resolution (213(VI) ) in 1950 thatthe Administering Authority would continue totake all possible steps to demonstrate to the localpopulation that equal commercial opportunity ex-isted.

The Administering Authority reported that theexploitation of mineral deposits remained limitedto gold, tin and alluvial titanium, and that thearea being mined was gradually declining.

Industrialization, on the other hand, was ac-tively continued during 1949 and 1950, espe-cially in the Douala and Edéa area. The openingin November 1950 of a spinning and weavingmill at Douala was cited by the AdministeringAuthority, as an important development in theTerritory. It also reported that a spinning mill atBafia had been completed; that the Douala brew-ery, with an annual output of 40,000 hectolitres,began operating in 1950; and that in 1949, twoEuropean plants improved their palm oil extrac-tion equipment. The Administering Authority re-ported that the Dibombari pilot plant for proces-sing palm oil began operations in 1950; this plant,given to the Cameroons by the French Govern-ment, is managed by a company in which 50 per

cent of the shares are reserved for African sub-scribers. Its reserve fund, the Administering Au-thority stated, are to be used for building newplants and improving plantations. A number ofthe Territory's soap works, which utilize palm oil,were equipped to manufacture high quality soapfor export in addition to ordinary soap for thedomestic market. The annual output of thegroundnut oil works at Pitoa in the north rose to400,000 litres of oil and 50 tons of oil cake; newoil works, with a capacity of 200,000 litres, werecompleted in 1950 at Bertoua in the south. Twolarge saw mills, capable of producing 100,000square metres of sawn timber, were set up withAmerican equipment. According to the annual re-ports, brick and tile works, quarries, lime and ce-ment works, saw mills, woodworking shops, aglassworks and an oxygen and acetylene plant wereassuming considerable importance with the ex-pansion of building activity.

Work on the Edéa hydro-electric plant was be-gun early in 1949 and it was expected that thefirst set of generators would be placed in servicein 1953. The electrification of industrial premisesin the towns of Douala, Yaounde, Maroua andN'Kongsamba was 50 per cent completed andYaounde had had street lighting since the end of1949.

The Trusteeship Council commended the Ad-ministering Authority for the vigorous economicactivity in the Territory and recommended that itcontinue to give Cameroonians the assistance andencouragement necessary to enable them to playa more significant part in the Territory's economicdevelopment, and that it take advantage, whenpossible, of the technical assistance availablethrough the United Nations and the specializedagencies. The Council further commended the Ad-ministering Authority for its policy of reserving50 per cent of the shares in palm oil processingplants for indigenous inhabitants. It also hopedthat this method of associating Cameroonians inthe Territory's industrial development would beincreasingly applied; moreover, the Council sug-gested, it should be combined with their intensi-fied training in technical skills and industrialmanagement.

According to the Administering Authority's re-ports, revenue and expenditure amounted to 3,-860,510,000 and 3,040,982,000 francs, respectively,in 1949 and to 4,491,336,000 and 3,729,736,000in 1950. Direct taxes, which accounted for 40per cent of revenue before the Second WorldWar, accounted for only 25 per cent in 1950, and


customs receipts became the primary source ofrevenue.

All taxes are paid in cash, and imprisonmentor forced labour for non-payment of taxes is pro-hibited, the Administering Authority stated. Italso stated that efforts were being made to takea census of indigenous taxpayers and to widenincreasingly the scope of the income tax, with theultimate objective of abolishing the head tax.These efforts were found commendable by theTrusteeship Council, which recommended their ex-tension with a view to the establishment of ageneral income tax system as soon as possible.

Data concerning the financial structure and theprogramme of works under the ten-year plan forthe economic and social development of Over-seas France were provided by the AdministeringAuthority. Works in progress as of 31 December1950 represented disbursement authorizations of12,597,700,000 francs; a credit of 3,214,700,000francs was opened for new works in 1950-51. Asum of over 6,000 million francs was contem-plated under the ten-year plan for road worksalone. The first instalment of the road construc-tion programme covered all the works most ur-gently required—the modernization of the maininter-territorial highways, and in particular of sec-tions of highway, and the construction of newroads of general value—involving a total of 1,520kilometres. The works were being carried out bymeans of modern mechanical equipment. In 1950,the Territory had 8,800 kilometres of roads, in-cluding all-weather tracks, and 1,800 kilometresof tracks passable in the dry season only. It hadover 504 kilometres of railway tracks. The ton-nage of freight carried by rail had risen steadilyfrom 251,000 tons in 1947 to 398,000 tons in1950. Works were also in progress for the im-provement and expansion of the railway systemand for the expansion of the port of Douala toan annual capacity of 1 million tons; the traffichandled by this port had risen from 160,000 tonsin 1946 to 500,000 tons in 1950.

The Council commended the Administering Au-thority for its active road construction and ex-pressed the hope that this programme would beexpanded and accelerated.

Under the system of land tenure, land is di-vided into three main categories: (1) public or"private" domain of the Territory, including inparticular vacant and ownerless land—only landscheduled as "private" domain may be transferredby sale or, subject to consultation with the Repre-sentative Assembly, by concession; (2) land held

by indigenous communities or individuals purelyunder the rules of local custom; (3) land under-going proceedings for the recognition of propertyrights. The granting of rural concessions, sus-pended since 1937, was re-established by an Or-der of 7 April 1949, the Administering Authorityreported. By the end of 1950, the total area ofthe land granted in concession, both provisionallyand finally, amounted to 711 hectares in 2,414urban concessions, and to 102,355 hectares in 876rural concessions; 78 hectares, comprising 1,482urban lots, and 2,690 hectares, covered by 99 ruralconcessions, were granted to indigenous inhabit-ants. The vast majority of indigenous inhabitantshold land without formal title either collectivelyor, to an increasing extent, individually. The Ad-ministering Authority reported in 1949 that thenecessary arrangements had been made to speedup the procedures for the formal recognition ofland rights of Africans. In 1949, Africans heldregistered title deeds for 233 hectares of urbanland and 3,066 hectares of rural land. At the re-quest of the Assembly of the French Union, theAdministration of the Territory convened four-teen regional commissions of African notables andlandowners to study a reform of the land tenuresystem with a view to reaching a compromise be-tween customary and modern law.

After noting that the Assembly of the FrenchUnion had requested the French Government tomake a study of draft legislation to define thejuridical status of individual, communal and ter-ritorial real property, taking into account localcustoms, traditions and religions, the TrusteeshipCouncil expressed the hope that the Administer-ing Authority would find a solution to this far-reaching problem that would have the full agree-ment of the inhabitants. It recommended that ingranting concessions to non-indigenous inhabit-ants care should be taken to safeguard adequatelythe interests of the African population.

At its ninth session, as in the past, the Trustee-ship Council examined several petitions relating

5/92) for the recognition of the real propertyrights of the Baliléké who live in the Moungoregion. The Administering Authority stated thatthe matter was covered by administrative regula-tions and required no special reply. By resolution392(IX) of 26 July 1951, the Council informedthe Kumzse that it had established a Committeeon the Rural Economic Development of the TrustTerritories to study land problems.64

64 See pp. 782-84.

726

to land tenure. The Kumzsé petitioned (T/Pet.-


Allegations that chiefs had expropriated landbelonging to the people were made by the Union

5/95) and the propaganda secretary of the Unionat Bamoun (T/Pet.5/87). The former supportedtheir charges against Njimulu, the Supreme Chiefof Mfeute, by citing seven cases in which he al-legedly robbed various persons of their propertyor belongings. They asked for an impartial en-quiry as they claimed that complaints againstsupreme chiefs were not examined by the Admin-istration. The Administering Authority explainedthat the reorganization of the chefferies in 1939had resulted in a redistribution of certain lands.The customary courts, which, it stated, were nodoubt influenced by pressure from certain chiefs,had not yet handed down a decision in the casescited, but an appeal might be brought in theTribunal of the Second Degree. Accordingly, theTrusteeship Council recommended (resolution 395(IX) of 26 July 1951) that the AdministeringAuthority take the necessary steps to inform theUnion at Bamoun of the procedure to be fol-lowed to hasten the settlement of the claims.

Two other petitions also referred to the systemof land tenure. The Union des Syndicats con-fédérés du Cameroun (T/Pet.5/89) asked thatthe paramount interests of Cameroonians be re-spected, while the Union des populations du Cam-eroun at Ekounou (T/Pet.5/83) urged the promptrevision of the system of land tenure and, in par-ticular, the abolition of the classification of landsas "vacant and ownerless". The Council informedthese petitioners that it regularly examined theproblem of land tenure, among other questions(resolutions 385(IX) and 390(IX) of 26 July1951).

The forest zones of the Cameroons, according tothe Administering Authority's reports, cover ap-proximately 15,870,000 hectares of dense equa-torial forest, 12 million hectares of wooded savan-nah and 60,000 hectares of mangroves. An esti-mated 2,300,000 hectares are economically exploit-able. The licences in force covered an area ofabout 2,243,000 hectares for timber and 13,200hectares for firewood.

To protect the Territory's forests, which, theAdministering Authority stated, are threatened bythe indigenous practice of raising crops in forestclearings, the Forestry Service conducted some ex-periments in 1949 in silvicultural collaborationbetween the African farmers and the Administra-tion. The Administering Authority indicated thatthe scheduling of forests, which was suspended

temporarily, would be resumed after the questionof the ownership of forests had been settled andthe respective rights of the Territory, communi-ties and individuals defined. According to the re-port for 1950, the Representative Assembly has,since 1949, resisted any extension of the per-manent forest area, although the present areawas only one million hectares, or 2.5 per cent ofthe area of the Territory, whereas 33 per cent wasregarded as essential for soil conservation. TheUnion des populations du Cameroun in the vil-lage of Akomnyada protested (T/Pet.5/85)against the scheduling of the community's forestand stated that the people had been fined overtwo million francs. The Administering Authoritystated that the forest reserve at Akomnyada hadbeen classified according to regular procedure inconformity with the principles of resource pro-tection approved by the Trusteeship Council atits sixth session,65 and that the acquired rights ofthe inhabitants had been scrupulously respected.It added that fines amounting to only 21,600francs had been imposed to convince the inhabit-ants of the village that violations must cease. TheKumzsé stated (T/Pet.5/90& 92) that cultivationwas not yet free in the Cameroons, particularly inthe Moungo region, and called for the abolition ofrestrictions on profitable crops (i.e. of coffee) inthe Bamiléké region. The allegations concerningfreedom of cultivation were denied by the Ad-ministering Authority, which explained that non-edible crops illegally planted in the forest re-serves were pulled up by the forest guards onlyto safeguard the country's forest resources, in ac-cordance with the regulations in force.

The maintenance of adequate forest cover wasconsidered by the Trusteeship Council essentialfor any effective soil conservation programme.Noting that the local population and its repre-sentatives in the Assembly had not yet understoodthe vital importance of maintaining forest coverfor the future of the Territory, the Council rec-ommended that the Administering Authority takeeffective steps to solve this complicated problemwith the support of the indigenous inhabitants.By resolution 386(IX) of 26 July 1951, theCouncil informed the Union des populations duCameroun, Akomnyada, of its conclusions. At thesame time, it expressed the hope that the Admin-istering Authority would try to conciliate the ne-cessity of forest reserve legislation with the wishof the indigenous inhabitants to keep as mucharable land as possible.

65 See Y.U.N., 1950, pp. 718-19.

des populations du Cameroun at Bamoun (T/Pet.



In its report for 1950, the Administering Au-thority observed that the economic and politicaldevelopment of the Territory had involved andwould increasingly involve a break with the tra-ditional way of life and it was essential to ensurethe development of the indigenous population insuch a way that a sense of individual responsi-bility replaced community consciousness. The pro-cess of development was particularly rapid amongthe southern and coastal tribes, and was beingclosely watched by the local Administration.

To cope with the danger inherent in the forma-tion of a floating population in the large centres,the Administering Authority stated, certain ad-ministrative measures had been strengthened, in-cluding the issuing of identity cards and refusalof permission to stay in the area. It added thatthe housing situation was still critical in Doualaand Yaounde, despite the construction of a largenumber of houses. Although the upward trendin the prices of foodstuffs and consumer goodscontinued, it was noted, there were signs of defi-nite improvement in the standard of living ofthe population generally and increasingly largeamounts of imported products were being con-sumed. Joint studies of wages, carried out over aperiod of several months by the trade unions andemployers' associations, had resulted in the sign-ing of agreements in May and October 1950. Inparticular, minimum wage rates, fixed on the basisof the prices of commonly consumed commodi-ties, were substantially increased, in some cases byone third. The Administering Authority informedthe Trusteeship Council during its ninth sessionthat wages below the minimum rate could notbe offered lawfully. Above that limit, wages ac-tually paid depended on the supply and demandof labour, which, it added, at the time favouredthe workers. It also stated that a new and moredetailed survey of the standard of living had beenstarted in the Territory.

The Trusteeship Council, referring to its earlierconcern over the low wages in the Territory,noted with approval the substantial increase inthe minimum wage rates during 1950. It urgedthe Administering Authority to continue and toextend its study of standards of living, to reviewminimum wage rates at relatively frequent inter-vals and, in general, to make every effort to seethat wage rates continued to increase sufficientlyrapidly to compensate for prevailing inflationarytendencies.

An enquiry completed early in 1949, the Ad-ministering Authority reported, showed a total of3,824 European employees and 134,405 Africanemployees (22,061 skilled workers, 8,000 domes-tic workers and 104,344 labourers). Membershipin employee, agricultural and employer trade un-ions, which numbered 139 in 1949, rose from13,600 in 1947 to 20,350 in 1950. The Admin-istering Authority considered the chief feature ofthe crucial labour problem in the Cameroons notso much the shortage of workers as the low rateof output and the lack of discipline at work. Butit stated that the position was improving and thatworkers were tending to setttle down as a resultof the higher standard of living.

A psychology selection and vocational trainingcentre was set up and a system of apprenticeshipcontracts was being studied. A rapid trade-trainingschool at Yaounde began to operate in 1949 andtwo such schools were to be established at Doualaand Garoua in 1951. The establishment of voca-tional schools was noted with gratification by theTrusteeship Council, which recommended thatthis work be vigorously pushed forward.

The Union des Syndicats confédérés du Cam-eroun objected in its petition (T/Pet.5/89) toseveral provisions of the draft labour code forOverseas France which was being considered bythe French National Assembly; in particular, itcontended that article 2 of the code in effectrestored forced labour. The Administering Au-thority informed the Trusteeship Council duringits ninth session that this article had already beenamended by the National Assembly.

The Union, as well as Mr. Kamsi David (T/-Pet.5/96 & Add.1), alleged that racial discrimina-tion still existed in the Territory. It stated thatthere was discrimination in, among other things,the administration of justice, in wages and inbusiness, and that signs reading "European coun-ter" and "African counter" were displayed in bus-iness establishments. The Administering Authorityassured the Trusteeship Council that it was at-tempting to eliminate the last traces of whatmight be interpreted as racial discrimination, andit described its efforts in this direction.

The Union des Syndicats confédérés du Cam-eroun further alleged that trade unions were ac-tively repressed in the Cameroons. Similar allega-tions were made by the Union des populations duCameroun (T/Pet.5/83); officers and members ofthis Union, it was stated, had been arrested fortaking part in political meetings and for sending


petitions to the United Nations. It was chargedthat the Administration was attempting in thismanner to impede the progress of their move-ment and to convict all of the active membersof the Union so as to prejudice the results of the1951 elections. The Union asked that the UnitedNations intercede for the release of the prisonersand, if possible, send a commission to witnessforced labour and restrictions on freedom of as-sociation and political opinion. Other petitions(T/Pet.5/86, 87, 89/Add.1 & 92) also containedallegations of restrictions upon political libertyin the Cameroons.

The Administering Authority asserted (T/AC.41/SR.14 & 15) that all these allegations weretotally unfounded. It stated that the accusationsmade by the Union des populations du Camerounwere made as part of this organization's policyof systematic opposition to the Administrationand that the arrests referred to had involved elec-toral fraud, libel, sedition and contempt of court.

The above petitions were dealt with by theCouncil in resolutions 385(IX), 387(IX), 388(IX), 390(IX), 392(IX) and 396(IX), adoptedon 26 July 1951. It informed the petitioners thatit examined each year the questions they hadraised. It drew the attention of the Union des popu-lations du Cameroun and the Union des Syndi-cats confédérés du Cameroun to all the recommen-dations adopted at its ninth session with respectto the Cameroons. It also informed the formerorganization that the second United Nations Vis-iting Mission to the Cameroons was expected togo to the Territory in 1952, and drew attentionto the statement of the first Mission to the effectthat the various categories of the population wereentirely free to express their opinions, presenttheir petitions and make their complaints.

No important developments in the status ofwomen in the Cameroons were reported. Effortswere being made by the Administration and pri-vate organizations to free women from the hold

5/92), condemned the dowry system. In this con-nexion, the Administering Authority reported in1950 that attempts made by the Council in theMbam Region to suppress the dowry system hadgiven rise to bitter controversy but it was hopedthat the example of the educated Africans andthe education of girls would lead to the socialemancipation of women. The Trusteeship Councilrecommended that the Administering Authoritytake all feasible measures to ameliorate the posi-tion of women in the Territory.

The public health service consists of a fixedorganization chiefly concerned with the practiceof curative medicine and a mobile organizationresponsible for the practice of preventive medicine.The latter includes (1) prophylactic squads whichfight epidemics and trace endemic and social dis-eases, sending the sick to institutions for treat-ment, and (2) sanitation squads.

The Administering Authority reported that 44,-185 Africans were admitted to hospitals in 1950as against 42,225 in 1949; 1,396,042 consulta-tions of various kinds, including 282,194 forschool-children, were given in 1950 as against1,367,756, including 233,442 for school-children,in 1949. The number of European doctorsin the public health service rose from 34 in1948 to 44 in 1950, and African doctors from58 in 1949 to 61 in 1950. The number of certi-fied nurses rose from 803 in 1948 to 907 in 1950.Three African doctors were studying in France.There were in the Territory eighteen other doc-tors, in private practice or attached to the mis-sions, nine pharmacists and two dentists.

The estimated expenditure of the public healthservice for 1950 was 375,531,000 francs, or 11.9per cent of the total budget, as against 270,434,-000 francs for 1949. In addition, 379,900,000francs had already been earmarked for medicalservices out of the funds of the ten-year plan.Under this plan, seventeen large dispensaries, tenmaternity hospitals, seventeen in-patients' wings,43 small local dispensaries, one leper hospital,five houses for African doctors, and miscellaneousworks, were either completed or under construc-tion.

The Union des Syndicats Confédérés du Cam-eroun petitioned (T/Pet.5/89) for more clinics,while the Kumzsé also asked (T/Pet.5/92) fordispensaries for communities far from the chieftowns, and called for the installation of bathroomsin maternity hospitals in the Bamiléké region.

The Trusteeship Council expressed its approvalat the increased effectiveness of medical servicesand urged the Administering Authority to con-tinue to ensure the widest possible provision ofmedical facilities in the Territory and to this endto intensify its efforts to train African medicalpersonnel.

d. EDUCATIONAL DEVELOPMENTThe Administering Authority stated that its

aims in education were to ensure the generaldissemination of basic education by making at-tendance at school as widespread as possible, and

of tradition. The Kumzsé, in its petition (T/Pet.


to form an indigenous élite with a view to train-ing the Territory's own teaching staff.

According to the annual reports, basic educa-tion is given in the public and private primaryschools. The syllabus is based on that of schoolsin Metropolitan France but wholly adapted tolocal conditions following a reform put into effectin October 1950. Private education is conductedat "declared" schools, which are required merelyto meet certain health and disciplinary require-ments, and at "recognized" schools, which aresubject to strict supervision by the official servicesand are required to guarantee the competence oftheir staff. The latter are the only schools eligiblefor government subsidies. This education is sup-plemented by the work of cultural associationsand libraries. In addition, an ambitious programmefor vocational training was initiated in 1950, asexisting facilities were considered inadequate. Pri-mary education is free in all the Territory's publicand recognized private schools. Some missionscharge a small fee. A system of scholarships forboarding pupils has been established in secondaryschools, with the result that fees at boardingschools are payable only by the children of well-to-do families; 70 per cent of the students at-tending secondary schools were scholarship hold-ers. The Administering Authority reported that ithad continued its efforts to expand education forgirls and that the number attending primaryschools had increased from 15,500 in 1949 to19,829 in 1950; 194 attended secondary schools.

As of July 1950, primary education was con-ducted at 181 public schools attended by 26,682pupils, and at 1,071 private schools, attended by102,231 pupils; 1,586 students, including 50Europeans, attended secondary schools.

The public and private primary school teachingbody included 2,487 African teachers and 249European teachers; of the total, 236 were women.All the teachers in the public primary schools andan increasing proportion (almost 70 per cent) ofthose in private primary schools were certifiedteachers. The secondary school teaching body com-prised 123 teachers, including 38 women; almostall were Europeans.

Teacher-training is given at the YaoundeTeachers' Training College and four private sec-ondary schools, supplemented by a scholarshipsystem enabling students to take advanced educa-tional or technical courses in France. According tothe reports, the syllabuses are identical with thoseof French schools of the same type, the object be-

ing to train African teachers up to the same stand-ards as their European counterparts. Studentteachers were also being trained at a special prac-tical course at Yaoundé College. At the end of1950, 221 students from the Cameroons heldscholarships in France, 32 for "advanced training",37 for higher education and 83 for secondarystudies. Organization of university courses inthe Territory was being studied, the Administer-ing Authority observed, but the financial effortrequired for the establishment of a local univer-sity was considered out of all proportion to thenumber of students.

The Administering Authority recognized thatthe number of schools was not keeping pacewith the increased demand for education. Thisdemand was reflected in two petitions, from theUnion des Syndicats confédérés du Cameroun (T/-Pet.5/89) and the Kumzsé (T/Pet.5/92). The lat-ter also asked for compulsory primary educationfor girls.

In its report for 1950, the Administering Au-thority described its efforts to expand education,including teacher-training facilities. Under theten-year plan, 348,900,000 francs had been au-thorized by the end of 1950 for building andequipping new schools; works costing 156 millionfrancs had been completed by the end of June1950 and others, amounting to 63 million francs,were in progress. Of 332 million francs allocatedin the Territory's annual budget for education in1950, a total of 30 million francs was for schoolconstruction; an additional 77.5 million francs outof the allocation for public works had been setaside for schools.

The Trusteeship Council expressed its approvalthat public education in the Territory was freeand that the number of pupils and the amount offunds appropriated to education had increased. Itnoted with concern, however, the large numberof children and adults still lacking elementary in-struction and expressed the hope that adequatesteps would be taken to provide educational fa-cilities at all levels, with particular emphasis onprogress toward the establishment of compulsoryprimary education. The Council considered thelack of teachers the greatest bottleneck to educa-tional advancement in the Territory, and notedthat the United Nations Educational, Scientificand Cultural Organization (UNESCO) also foundthat the training of teachers was the main edu-cational problem. After noting with approval theopening of a normal school at N'Kongsamba, theCouncil expressed the hope that the Administer-


ing Authority would accelerate its efforts in theall-important field of teacher-training.

3. Togoland, Administered by theUnited Kingdom

This Territory has a total area of 13,040 squaremiles. According to the Administering Authority'sannual reports,66 the African population in 1948numbered 383,563, about 65,000 of whom camefrom outside the Territory. There were only 51Europeans in the Territory, mainly governmentofficials or missionaries. There are no large townsin the Territory, the principal centres of tradeand administration being Ho, Hohoe, Kpanduand Kete Krachi in the south and Yendi in thenorth, each containing a few thousand people.


Togoland continued throughout 1949 and 1950to be administered as an integral part of the GoldCoast Colony and Protectorate, with which itshares a common Constitution, a common budgetand common administrative and technical services.The Trust Territory is divided into two principalparts: the Southern Section, which forms one dis-trict of the Gold Coast Colony; and the NorthernSection, which is subdivided to form parts of threedistricts of the Northern Territories Protectorate.

The Administering Authority reported that, un-der a new Constitution,67 promulgated on 29 De-cember 1950 for the Gold Coast, including Togo-land, the two territories advanced to a stage ofpolitical development which placed them, in itsestimation, ahead of all other United Kingdom-administered colonial and Trust Territories intropical Africa. Parts of this Constitution enteredinto effect at the beginning of 1951. Under it,the Gold Coast Executive Council, which hadformerly had purely advisory functions, was reor-ganized, and a Gold Coast Legislative Assemblywith legislative power for the whole of the GoldCoast and Togoland was established to replace theGold Coast Legislative Council, whose functionshad been limited to enacting legislature for theColony and the Southern Section of the TrustTerritory only. Legislative authority for the North-ern Territories of the Gold Coast, includingNorthern Togoland, had been vested under theold Constitution solely In the Governor, who alsohad had power to legislate separately for SouthernTogoland, and had occasionally done so.

Under the new Constitution, the ExecutiveCouncil is the principal policy-making instrument

and the Governor is required to consult it in theexercise of his powers, with certain exceptions,and to act in accordance with its advice. TheCouncil is composed of three ex officio membersand at least eight other members chosen fromamong the elected members of the new LegislativeAssembly; no seats are allocated specifically toTogoland or any other areas of the Gold Coast.The Constitution also gives increased legislativepowers to the Assembly. In both executive andlegislative fields, certain powers are reserved forthe Governor. The Constitution includes a spe-cial provision, applying to the whole of Togoland,guaranteeing that any law repugnant to the Trus-teeship Agreement shall be void in the Territoryto the extent of the repugnancy.

A wider system of suffrage than any previouslyused in the Territory, the Administering Author-ity stated, was introduced for the election of thenew Legislative Assembly. Out of its 84 members,75 are elected: 37 by the Gold Coast Colony, in-cluding three from Southern Togoland; nineteenfrom Ashanti (in the Gold Coast); and nineteenfrom the Northern Territories. Direct, single-stageelections remain limited to certain municipalitiesin the Colony and Ashanti areas of the Gold Coastproper, which elect five members in this manner.

The nineteen members for the Northern Ter-ritories are elected by a single electoral college ofthe Northern Territories, including the NorthernSection of Togoland; the electors are drawnmainly from existing tribal or traditional organi-zations. Although no seats in the Assembly arespecifically set aside by the Constitution for theNorthern Section of Togoland, two of the mem-bers elected were Northern Togolanders.

As regards the Southern Section of the TrustTerritory, one of the three members allocated to

66 United Kingdom, Colonial Office, Report by His

Majesty's Government in the United Kingdom of GreatBritain and Northern Ireland to the General Assemblyof the United Nations on the Administration of Togo-land under United Kingdom Trusteeship for the year1949 (H.M.S.O., London, 1950; Colonial No. 259) andReport . . . for the year 1950 (H.M.S.O., London, 1951,Colonial No. 274). For detailed discussions of thesereports in the Trusteeship Council, see summary recordsof the ninth session of the Council (5 June-30 July1951); summaries of the observations of individualmembers are included in the Council's report to theAssembly (A/1856). For general discussion in theAssembly concerning conditions in Trust Territories,see pp. 768-72.

67 The constitutional instruments are the Gold Coast(Constitution) Order-in-Council, 1950; the Letters Patentand Royal Instructions passed to the Governor by theAdministering Authority; the Northern Territories of theGold Coast Order-in-Council, 1950; and the Togolandunder United Kingdom Trusteeship Order-in-Council,1949.


that area was elected by the Southern TogolandCouncil; this special body, on which the six Na-tive Authorities of the Southern Section are repre-sented, was set up late in 1949 as an advisory or-gan and as a means of electing or appointingrepresentatives of the Southern Section to the leg-islature and to various economic and other boardsand committees of the Gold Coast. It had, in 1950,selected the first Togoland member of the former32-member Gold Coast Legislative Council. Theother two members of the new Legislature fromthe Southern Section were among 38 Assemblymembers elected as "rural members", under a newtwo-stage electoral system provided for in theConstitution. According to this system membersare elected by electoral colleges, which in turnare elected by universal adult suffrage.

Both stages of the rural elections, held in Feb-ruary 1951, were by secret ballot and were pre-ceded by an elaborate public information cam-paign, the Administering Authority stated. It con-sidered the over-all result not unsatisfactory, tak-ing into account the complete novelty of the pro-ceedings and the short period available to preparethe people. In the two rural constituencies of theSouthern Section, the Administering Authority ad-duced, 23.9 and 30.7 per cent of the nominallyeligible persons registered, as compared with anover-all average of 31.9 per cent for the GoldCoast Colony and Southern Togoland combined.

The Administering Authority reported thatsteps had been and were being taken both toreorganize the administration of the Gold Coastand Togoland as a whole, on a regional basis, andto reform the system of local government. Theconstitutional reform proposals, which were stillunder study at the end of 1950, provided forthe establishment of four administrative regions—the existing Northern Territories, the Ashantiarea, the Colony area, and a new region in whichSouthern Togoland would be combined with ad-jacent, and mainly Ewe-inhabited, districts of theGold Coast. The central, government would de-centralize its services as far as possible to theseregions, each of which would have its own treas-ury and budget, representative council and exec-utive committee.

The Administering Authority stated that North-ern Togoland, would, as desired by its people,continue to be administered as part of the North-ern Territories. With regard to the proposal forforming the new region in the south, the Admin-istering Authority observed that discussion in theSouthern Togoland Council during 1950 had been

inconclusive. The Administering Authority itselfhad earlier withheld its approval of this proposalin view both of the opposition expressed by To-golanders in the Southern Section and of the spe-cial status of the Territory. It had stated that thedecision must clearly depend on the interests ofthe people concerned.68

Detailed proposals for the transformation ofthe system of local administration by the NativeAuthorities into a more effective and democraticsystem, the Administering Authority reported,were awaiting action by the Legislative Assembly.

Opposition to the constitutional reforms was,as in the previous year,69 voiced in several peti-tions emanating from the Southern Section ofTogoland. The Togoland Union, which desiredthe unification of the Trust Territory with Togo-land under French administration,70 maintained(T/Pet.6/206 & Add.1-3) that the wish of thepeople, pending the unification of the two Togo-lands, was that administrative and budgetary au-tonomy should be established in Togoland underBritish administration and that the Southern To-goland Council should be converted into a legis-lative body. They found the proposals for consti-tutional reform unacceptable, the Union declared,and objected to the fact that no provision wasmade for representation of Togoland on the GoldCoast Executive Council. The Union stated that"the Natural Rulers and people of Western To-goland" had therefore decided not to register orvote in the elections. In spite of this decision, italleged, the District Commissioner had been per-suading and intimidating chiefs and individualsto register. S. G. Antor, addressing the TrusteeshipCouncil at its eighth session in support of thispetition, stated that the three members subse-quently elected from Southern Togoland71 in noway represented the people. In another petition(T/Pet.6/219 & Add.1-3), Kodjo Buachie com-plained of illegal registration in the Buem Na-tive Authority area and Mr. Antor later submit-ted (T/Pet.6/243) 86 forms allegedly forged dur-ing the registration of voters in the Territory.

In two other petitions (T/Pet.6/275 & 278),the Togoland Youth Association also attributedthe boycott of the election to the people's desirefor their own legislative, executive and judicial

68 See Y.U.N., 1950, pp. 723-24.69

Ibid., p p. 724 ff.

70 See also section on Ewe and Togoland Unification,pp. 751-68.

71 Mr. Gerald O. Awuma and Mr. Kodzo elected bythe two rural constituencies and Mr. F. Y. Asare by theSouthern Togoland Council.


organs. It charged that the Administering Author-ity was attempting to annex the Trust Territoryto the Gold Coast. One of the Native Authorityorgans in the Southern Section, the Akpini StateCouncil (T/Pet.6/214), informed the TrusteeshipCouncil that it did not intend to allow electionsto be carried out because of the confusion amongthe people, arising from the fact that they hadat one and the same time to consider their repre-sentation on the Anglo-French Standing Consult-ative Commission for Togoland Affairs (dealingwith the unification question)72 and on the leg-islative Assembly, and that insufficient informationand publicity had been given.

In its observations on these petitions, the Ad-ministering Authority stated that the introductionof the new Constitution did not prejudice a so-lution to the unification question, and that by nomeans all persons advocating unification had boy-cotted the elections. It pointed out that the ma-jority of Togolanders had preferred to co-operatein making the new Constitution work smoothly.It stated that there had been no charges of forgingof registration forms except from the sub-districtof Jasikan; investigation had revealed that theforms, filled out at the instigation of the localchief and in no way prompted by the Adminis-tration, had been confiscated and never used. Oth-erwise, the Administering Authority maintained,no persons had been registered who did not applyfor registration. With reference to the petitionfrom the Akpini State Council, which it statedcame from only a small minority of that Council,the Administering Authority had appreciated thepossibility of confusion arising from the unfortu-nately short time between the elections for theConsultative Commission and the registration forelections under the new Gold Coast Constitution.Consequently, every effort had been made to ex-plain the purpose and significance of the two pro-cedures to the people of Togoland and to publi-cize, among other things, the elections and theregistration procedure.

The Trusteeship Council commended the Ad-ministering Authority on the promulgation of thenew Gold Coast Constitution. It considered thisan important step toward full responsible govern-ment in the Trust Territory and expressed its sat-isfaction that the Constitution would give Togo-landers the opportunity of acquiring higher polit-ical experience. The constitutional safeguards void-ing the application in Togoland of any provisionsof laws repugnant to the Trusteeship Agreementand authorizing the Governor to use his reserve

powers to ensure that there were no infringementsof the Trusteeship obligations also met with theCouncil's approval. The Council further noted theAdministering Authority's assurance that it wasnot only preserving the status of the Trust Terri-tory but also taking particular measures to ensurethat full consideration would continue to be givento the interests of the inhabitants. The Councilexpressed the hope that all possible steps wouldbe taken to ensure full recognition of Togoland'sinterests in policies and programmes developed bythe Gold Coast Government and full participationof Togoland in all phases of Gold Coast progress.

The Council indicated that it awaited with in-terest the results of the regional reorganization ofthe Gold Coast and Togoland as it affected theTrust Territory. In this connexion, it recom-mended that the Administering Authority considerestablishing a region under the Gold Coast Con-stitution consisting of Southern Togoland alone.Reforms in local government, the Council hoped,would be approved by the Legislative Assemblyduring 1951 and soon inaugurated in Togoland.By resolutions 397(IX), 400(IX), 407(IX) and408(IX), adopted on 27 July 1951, the Councilcalled the attention of the above petitioners tothese conclusions and recommendations.

The extension of suffrage and the secret ballotto Southern Togoland was noted with satisfactionby the Council, which recommended that the Ad-ministering Authority extend suffrage to theNorthern Section as soon as possible.

With respect to the elections to the LegislativeAssembly, however, the Council, in its resolution397(IX) on the petitions from the TogolandUnion and Kodjo Buachie and S. G. Antor, ex-pressed regret that there should have been anyirregularities in the registration. It urged the Ad-ministering Authority to explain election proced-ures fully to all concerned so as to avoid the re-currence of such irregularities. The Council alsodrew the attention of all the petitioners to theimportance which it attached to any democraticelectoral system in the Territory designed to en-sure their fuller participation in local and centralgovernment, and the consequent importance ofthe petitioners' co-operation in future electionsand of the expression of their views by meansother than boycott. At the same time, the Admin-istering Authority was urged to devote special at-tention to preparing the indigenous inhabitantsfor participation in elections.

72

See pp. 751ff.


The various aspects of the integration of Togo-land with the Gold Coast were studied by theCouncil's Standing Committee on AdministrativeUnions, which examined the papers (T/C.1/L.6& 10) submitted to it on the subject and therelevant parts of the annual reports for 1949 and1950. The Committee's conclusions (T/917)were adopted by the Council during its ninth ses-sion. The Council stated its opinion that as faras the new constitutional framework was con-cerned, the interests of the inhabitants of Togo-land were fully protected. However, in view ofthe special status of the Trust Territory in inter-national law, the Council felt that it should keepthe new arrangements under constant review.

The Standing Committee also examined the op-eration of the administrative union in relationto the safeguards enumerated by the Council in195073 as necessary to protect the status of theTrust Territories and to enable the Council tocarry out its supervisory functions. In the past,the Council had expressed concern over the diffi-culty of performing its functions because of thedegree of integration of the Territory into theGold Coast, even at the lowest levels of adminis-tration, and the absence of adequate statistics anddata for the Territory. In its report for 1950, theAdministering Authority, while continuing to sup-ply only approximate estimates of revenue andexpenditure, gave fuller details of expenditureunder a greater number of main headings thanin previous years. It stated also that it had ar-ranged to keep separate statistics of purchasesmade in Togoland of cocoa and other produceand to obtain certain trade figures from whichto show fairly approximate estimates of the totalexternal trade of the Trust Territory, both byvalue and by commodities.

After noting the information provided in 1950and the Administering Authority's assurance withrespect to future reports, the Council neverthelessobserved that separate and detailed import andexport statistics for the Territory had not yet beenprovided. The Council, from the information avail-able, found no indication of non-observance ofthe other safeguards it had enumerated.

The Administering Authority reported that un-der the new Constitution the control of the GoldCoast civil service had been removed from thearena of politics and placed under the control ofthe Governor, who would be advised by a publicservice commission. Two experts had been com-missioned to make recommendations on the struc-ture of the civil service.

The policy of recruiting suitably qualified Af-ricans to senior posts in preference to non-localrecruits had been endorsed by a select committeeof the legislature which had also, the Administer-ing Authority stated, made broad recommenda-tions covering the development of secondary, tech-nical and higher education and the provision ofscholarships to ensure as rapid an increase aspracticable in the number of qualified Africans.An African Officer was appointed in 1950 to anew post of Commissioner of Africanization forthe Gold Coast.

The Administering Authority submitted figuresshowing that, of 402 civil servants stationed inthe Trust Territory at the end of 1948, a total of58 were Togolanders, and there were 940 Togo-landers in the whole Gold Coast civil service. Twoof the senior officers stationed in Togoland in1950 were Africans.

The Council expressed satisfaction at the estab-lishment of a post of Commissioner for Africani-zation, and the appointment of an African tothat post. It urged the Administering Authority tocontinue to take the measures necessary to ensurean increase of qualified Togolanders in all branchesof the civil service, particularly the senior branch.

b. ECONOMIC DEVELOPMENTThe Trust Territory's economy is basically agri-

cultural, and most of the population is normallyengaged in producing foodstuffs for subsistencepurposes by primitive methods of farming. Cocoais the principal cash and export crop of the Terri-tory. There is also some trade in surplus foodstuffs,both internally and with the Gold Coast.

Cocoa continued to be produced entirely byAfrican farmers in the Southern Section of Togo-land and marketed entirely under the guaranteed-price arrangements of the statutory Gold CoastCocoa Marketing Board. The Togoland crop isregarded as part of the Gold Coast crop and hasaveraged about 8 per cent of the total, accordingto the Administering Authority. The less impor-tant quantities of coffee and palm kernels pro-duced by the Territory were purchased and mar-keted since April 1950 by a similar statutoryorganization, the Gold Coast Agricultural ProduceMarketing Board. During 1950, Togoland wasrepresented on both Boards by a member electedby the Southern Togoland Council.

The Cocoa Board has its headquarters at Accra,in the Gold Coast Colony, it purchases the entire

73 See p. 778.


cocoa crop through trading firms, co-operativesand other buying agents and sells through a sub-sidiary company in London. The cocoa is shippeddirectly, where possible, to the purchasing coun-tries, of which the most important in 1950 werethe United States, the United Kingdom, theNetherlands and Germany. The Board is not sub-ject to income tax, and in its annual report for1949-50 it stated that the interest (nearly £800,-000 in 1949-50) from its invested reserves aloneamounted to more than 35 times its marginaloverhead.

In the year ending 30 September 1950, theBoard spent some £23.5 million on cocoa beforeshipment, and received £45 million in proceedsfrom sales. After costs, the Board made a surplusof some £18 million, bringing its accumulatedsurpluses to almost £52 million. Of this, £35million was set aside as a stabilization fund. Al-though it was originally intended to build upthis reserve to £30 million, the Board in 1950considered that, because of the increase in theworld price of cocoa, it might have to increasethe fund to about £50 million to ensure that itwould be able, in the event of a serious fall inworld prices, to stabilize the prices paid to theproducers.

From a sum of £8 million set aside for thepurpose, the Board spent some £787,000 on therehabilitation of cocoa areas affected by the swol-len shoot disease; this included compensation forcutting out diseased trees and grants for replant-ing. The Board also gave the Gold Coast Univer-sity College £1 million for agricultural researchand set aside funds to finance a scholarship schemefor the cocoa areas. In addition, the Board madea first grant of funds, amounting to £61,250, forgeneral development in the cocoa areas; of this,Togoland's share, it was stated, would be about£5,500, to be spent through the Southern Togo-land Rural Development Committee for feederroads, wells, dispensaries and other services ofbenefit to cocoa farmers. The Administering Au-thority stated that a new graduated export dutyon cocoa, additional to the existing 8½ per centad valorem duty, and starting at the rate of 1½per cent, was also to be used exclusively forfinancing development generally.

The annual fixed price paid to the Togolandfarmer had, the Administering Authority stated,varied considerably since 1947; in 1949-50 theTogoland average was £84 and the New Yorkmean price was £178. For the 1950-51 crop yearthe price to the farmer was raised to £131 per

ton, the highest price ever paid. Purchases fromTogoland in 1949-50 totalled 23,046 tons, outof a total Gold Coast purchase of 247,834 tons,and were the highest on record. The total amountpaid out to the Togoland producers was £1,935,-864. The agents buying the cocoa on behalf ofthe Board were paid fees aggregating £198,771.Export duty amounted to £354,684. For the GoldCoast crop as a whole, the Board paid an averageof £110 6s. per ton to buy, ship and market thecocoa; it sold the crop at an average of £178 perton.

In its previous consideration of the operationsof the Board, the Trusteeship Council was con-cerned with two aspects in particular: (1) thebenefits derived by the farmers and the generalpopulation of Togoland from the sale of cocoa;and (2) the representation of Togoland on theBoard itself. In a petition (T/Pet.6/204) fromthe Togoland Farmers' Union, it was stated thatthe Togoland member of the Board was hot re-sponsible to the body whose interests he wassupposed to represent. The petition contained aresolution, addressed to the Southern TogolandCouncil (which ignored it, according to the Ad-ministering Authority), asking that the memberbe immediately withdrawn, and stating that ifthis were not done within three months all ofthe cocoa farmers in the Trust Territory wouldat once stop paying their annual taxes to theNative Authorities. In another petition (T/Pet.

requested that there be no monopoly on the pur-chase of cocoa or other Togoland produce, thatthe market be opened to nationals of any Memberof the United Nations, that the farmers be al-lowed to set up a Togoland Produce MarketingBoard responsible for fixing minimum pricesonly, and that the purchasing of crops should notbe left entirely in the hands of such a board.

The Administering Authority observed (T/-929 and T/L.216) that the member from Togo-land had been chosen by the Southern TogolandCouncil, which the Administering Authority con-sidered much more representative than the peti-tioning union. Moreover, the Ordinance govern-ing the constitution and powers of the Board hadbeen altered, effective 23 May 1951, at the insti-gation of the new Gold Coast Executive Council.The policy and operations of the Board had beenbrought more closely under government control,the Board being required to obtain the priorapproval of the Governor-in-Council before fixingthe cocoa price. Instead of consisting of a chairman

6/280), the Togoland National Farmers' Union


and twelve members mostly appointed by region-al or sectional bodies, the Board, it was explained,now consisted of a chairman and seven membersappointed by the Minister of Commerce, Industryand Mines, with the prior approval of the Gov-ernor-in-Council. The members included three pro-ducers, one of them being from the Trust Terri-tory, and three persons having wide experiencein commercial matters. The Togoland memberwas to be chosen by the Minister from amongpersons nominated in consultation with farmersof Southern Togoland.

Speaking in the Ad Hoc Committee on Peti-tions in support of the above petitions, S. G.Antor stated (T/AC.41/SR.16 & 18) that, at ameeting held by the National Farmers' Unionand fully representative of the cocoa-producingareas of Togoland, 33 of 37 regions had votedagainst representation on the Gold Coast CocoaBoard. The cocoa farmers wanted an electedrepresentative responsible to them and represent-ing their interests, he said, not merely a candidateacceptable to the District Commissioner. Theirprincipal objection to the new Board was that itwould be advised on policy matters by the GoldCoast Executive Council, on which Togoland wasnot represented, and that the Governor wouldcontrol the Board's funds without representationfrom Togoland on matters involving its economicinterests.

In reply, the Administering Authority statedthat, since the meeting of the National Farmers'Union had decided against representation on theBoard, it was for the Minister to decide what stepsshould be taken. It considered Togoland liberallyrepresented on the Board in view of the smalltonnage of its production, which did not justifythe establishment of a separate board for theTerritory. The Board now kept careful recordsof cocoa purchased in Togoland and its accountshad been widely publicized, the AdministeringAuthority stated.

The Trusteeship Council welcomed the reconsti-tution of the Cocoa Board and expressed the hopethat it would include adequate representation ofTogoland producers, and that the AdministeringAuthority would constantly bear in mind thedesirability of securing the co-operation and sup-port of the inhabitants of Togoland for the Board'spolicies. The Council also noted the healthy fi-nancial position of the Board and endorsed itspolicy of maintaining adequate reserves whileallocating surplus funds for projects of benefit tothe producers and for scholarships for their de-

pendents. It also expressed satisfaction that, as ithad previously requested, separate tonnage figureson Togoland cocoa production were provided.

On 27 July 1951 the Council called these con-clusions to the attention of the petitioners byresolution 409(IX). At the same time, it urgedthe Administering Authority to ensure that allelements among the Togoland cocoa producerswere consulted in drawing up the list of nomineesfor the appointment of a Togoland producer tothe new Board, and urged the cocoa producers toparticipate in such consultation. The Council fur-ther expressed the hope that the person chosenwould receive the support of the majority of thecocoa producers of the Territory. It also expressedthe hope that the Administering Authority wouldcontinue to maintain a separate record of cocoaproduced and purchased in Togoland and thatsuch information would continue to be madeavailable as widely as possible to the Territory'scocoa producers.

Prior to the adoption of this resolution, Mr.Antor stated that it would not be acceptable tothe Togoland farmers since they did not considerthat the Board represented their interests and sincethey had not been permitted to testify as to the ac-curacy (which they questioned) of tonnage figureson Togoland cocoa production.74

The Council, at its ninth session, also examined

6/212), which forwarded a resolution protestingthat a cocoa disease survey had been started inits area without the knowledge and consent ofthe head chief and by intimidation on the part ofthe District Commissioner. The petitioners com-plained that the cutting out of cocoa trees dam-aged the economy of the area; they were preparedto accept some other method of treating the cocoadisease but demanded the immediate withdrawalof the survey team. The Administering Authorityexplained (T/857) that Nkonya was not a Statebut only an unamalgamated Division which hadin the past refused to join a local governmentunit. It denied the allegations of intimidation andstated that the survey, intended merely to ascer-tain whether there were any diseased trees, hadnow been postponed. It added that the compul-sory cutting out of infected cocoa trees, the onlyremedy for swollen shoot disease, had been au-thorized by the Gold Coast Legislative Council,but that, under a new policy, farmers were en-couraged to cut out their own trees and werecompensated for them.

74 See also p. 760.

a petition by the "Nkonya State Council" (T/Pet.


In its resolution (399(IX) of 27 July 1951)on this petition, the Trusteeship Council urgedthe Administering Authority to continue its ef-forts to explain to the indigenous inhabitants thenecessity of cutting out diseased cocoa trees, whichpractice, it noted, was no longer compulsory.

According to the information supplied by theAdministering Authority, revenue and expenditurefor Togoland are included without distinction inthe Gold Coast budget. The Trusteeship Councilwas, however, provided with separate estimatedfigures for Togoland. These showed that estimatedrevenue and expenditure had progressively in-creased, from £363,900 and £625,540 respectively,in 1947-48, to £812,971 and £799,735 in 1949-50,when, for the first time, revenue exceeded ex-penditure.

By far the most important item of revenue isimport duty, estimated at over £450,000 (56 percent) in 1949-50. The Administering Authorityconsidered that the increase in total revenue waslargely due to the good cocoa season and the highprice paid for it; export duties, mainly derivedfrom cocoa, rose to £188,000 in 1949-50 (over£70,000 in 1948-49). Other main sources of rev-enue were income and company tax (£52,000)and grants under the United Kingdom ColonialDevelopment and Welfare Act (£33,350). Thelargest items of expenditure in 1949-50 were foreducation (£166,626) and public works (£128,-348).

The Administering Authority reported that anover-all ten-year development plan for the GoldCoast, including Togoland, was awaiting legisla-tive approval in 1951. The draft plan, it wasstated, provided for the setting up of a develop-ment fund, estimated at more than £70 million,taking into account increased recurrent expendi-ture. The funds would be derived mainly fromloans (£25 million), general revenue (£15 mil-lion), new taxation (£10 million) including theadditional duty on cocoa, and surplus assets (£7.5million). United Kingdom colonial developmentfunds would be available to the amount of £3million.

Expenditure over the ten-year period would bedivided mainly between economic and productiveservices and communications and social services.The extent of expenditure in Togoland could notyet be estimated, the Administering Authoritystated. Meanwhile, local development had beenfostered through local development committeesestablished to encourage community improvement.Grants of £10,000 were made in 1948-49 and

again in 1949-50 to committees covering areaswholly within Togoland, and grants of £8,000were made to others whose spheres of operationinclude parts of the Territory.

The Trusteeship Council, noting the Territory'sfirst surplus of revenue over expenditure, ex-pressed the hope that the improved financialsituation would continue and be reflected in in-creasing appropriations for the development ofTogoland in all fields. It also looked forward withinterest to the final approved form of the ten-yeardevelopment plan as it affected the Trust Territoryand expressed the hope that the plan would bepromptly implemented.

The Administering Authority stated that itseconomic policy was to encourage the indigenousinhabitants of Togoland to develop the naturalresources of the Territory themselves. Almost theonly natural resource being used, it pointed out,was the land itself. Non-indigenous inhabitantswere prohibited by law from acquiring land with-out the previous consent of the Governor andsuch transactions were rarely authorized.

The Administering Authority considered thatthe production of a reliable cash crop was requiredto improve the economy of the Northern Section;groundnuts, it was felt, offered the best prospects.The north must first be assured adequate foodsupplies, however, and this in turn depended onintensified soil conservation work and improvedagricultural methods. Although it had found thenorthern farmers reluctant to adopt new methods,the Administering Authority stated, 155 farmersin the Kusasi area had by 1951 been converted tomixed farming with bullock-drawn ploughs. Inthe Southern Section, agricultural extension serv-ices were provided by an agricultural officer, whoalso supervised an agricultural station at Kpeve;in 1951, this station was to be supplied with afarm tractor for use and demonstration. An in-spector of produce, and survey officers carryingout cocoa disease control and rehabilitation werealso stationed in the Southern Section. Develop-ment committees offered financial and other as-sistance and legislation was enacted in 1950 toestablish a Gold Coast Agricultural Loans Board, onwhich Southern Togoland would have one repre-sentative, the Administering Authority reported.

The bulk of the imported goods sold in theTerritory, according to the Administering Author-ity's reports, is brought in through the Gold Coastby seven European companies, which also operateas buying agents, for cocoa in particular. Africansfrom other territories, it was stated, also have an


active role in the economy, being engaged infarming, fishing, trading and other pursuits. TheAdministering Authority stated that a select com-mittee of the legislature was considering whetherany form of financial or other assistance would begiven to Africans engaged in commercial activi-ties.

The Administering Authority reported that co-operative organizations were encouraged and thattheir number had increased from ten in 1947 to21 in 1950; most of these were engaged in cocoamarketing. A consumer co-operative was expectedto be established in 1951. In 1950, the Administer-ing Authority stated, an assistant co-operativeofficer and two inspectors were stationed in theTerritory. The increase in the number of co-operatives was noted with interest by the Trustee-ship Council, which recommended that the Ad-ministering Authority continue to foster theirdevelopment.

There were no major manufacturing industriesin the Territory, which, the Administering Au-thority stated, is not well endowed with therequirements of industry. In the south there weretwo brick and tile works. Assistance to the weav-ing industry, which is carried on as a villageindustry, has included financial and advisory sup-port to the weavers of Avatime by the Gold CoastIndustrial Development Corporation, a statutorycorporation established for such purposes. Anoutput of some 1,500 yards of cloth per monthwas expected in 1951. Assistance was also givento other craftsmen and artisans, including a potterand an ivory carver. Industry in the north waslimited to local crafts.

The Administering Authority reported that,in spite of shortages of staff and materials, it hadmade progress with its programme of providingthe Territory with adequate water supplies, aproblem the urgency and importance of whichhad been emphasized in 1949 by the first VisitingMission to the Territory. Further improvementshad been made to the piped supply at Ho, num-erous new wells had been established, the firststage of construction of a piped supply at Yendiwas completed, and construction of a piped sup-ply at Hohoe was scheduled to begin in 1951;further projected improvements included pipedsupplies at three other towns.

The damming of the Volta River, with theprimary purpose of providing hydro-electric powerfor an aluminium plant in the Gold Coast, wasstill under consideration. Togoland, the Adminis-

tering Authority stated, would derive both directand indirect benefits from this scheme.

A detailed account of recent improvements andextensions to the road system was given by theAdministering Authority, which also referred tothe increase in funds provided for this purpose andthe further development proposed under the draftten-year plan. The Trusteeship Council, after not-ing this information, recalled its previous (1950)recommendation that the Administering Author-ity intensify its road construction programme,and recommended that particular attention begiven to the construction of all-weather roads andthat progress be accelerated in improving thesurfacing of existing roads.

The considerable progress achieved in the eco-nomic field in general during 1949 and 1950 wasviewed with satisfaction by the Council. It com-mended the Administering Authority for its policyof encouraging the participation of the indigenousinhabitants in the economic development of Togo-land, in particular by providing for their repre-sentation on all boards affecting their interests andby establishing local agricultural and rural develop-ment committees. The Council expressed the hopethat similar committees in other economic sphereswould be established. It further urged the Ad-ministering Authority to intensify its efforts to in-crease agricultural production by indigenous farm-ers and to achieve greater diversification of pro-duction. The Council expressed satisfaction at theprogress made in providing water supplies andrecommended that the extension of supplies beincreased, particularly in the arid Northern Section.


The Administering Authority stated that thestandard of living in general rose steadily in 1949,and that this was accompanied by a general stabi-lization of economic conditions. It found evidencein 1950 that more money was in circulationthroughout the Trust Territory, but noted that inthe south the marked rise in the price paid forcocoa had been to some extent countered by asteady rise in the price of imported goods. Nocost-of-living surveys had been made, however,and no statistics were available, apart from listsof local market prices in the Southern Section.The Administering Authority stated that while itrecognized the desirability of obtaining detailedinformation on the cost of living, as had beenrecommended by the Trusteeship Council, it did


not agree that such information was essential asa basis for a realistic policy of public well-being.Nevertheless, it intended to carry out studies inthe next few years.

Apart from labour seasonally employed on thecocoa farms, roughly estimated at 20,000 to 25,000,the Administration and the Native Authoritieswere the main employers of labour, according tothe annual reports. In September 1949 a temporarycost-of-living allowance of 15 per cent was grant-ed, and was increased to 20 per cent in April1950. Examples of monthly wages paid by theGovernment in 1950 ranged from £3 18s. permonth for labourers to £11 17s. 1d. per monthfor the highest-paid carpenters. The cocoa workerswere, as a rule, employed either under caretakersystems, receiving one third of the produce ora commission on each head-load; or at an annualcontract rate of £12 to £20. Under the caretakerand contract systems, board, lodging, tools andworking clothes are provided by the farm owner.

The Trusteeship Council, noting the need forfurther improvement, expressed the hope that theAdministering Authority would not relax its ef-forts to ameliorate the living conditions of theindigenous inhabitants and again recommendedthat it undertake cost-of-living studies and reviewits wage policies in the light of such studies.

The Administering Authority stated that hu-man rights and fundamental freedoms withoutdiscrimination were guaranteed by law in the TrustTerritory.

Women played an important part in the eco-nomic life of the Territory as traders in the localmarkets, the Administering Authority reported,but Native custom did not recognize their exerciseof formal political rights. The Administering Au-thority noted that in the Southern Section, how-ever, women had become more and more vocalin their desire for political recognition and hadbeen granted the vote under the same conditionsas men.

The Trusteeship Council urged the Administer-ing Authority to continue giving special attentionto measures designed to improve the status ofwomen.

The abolition of corporal punishment has beenrepeatedly recommended by the Trusteeship Coun-cil and the General Assembly. The AdministeringAuthority reported that for many years no courtsentence had been imposed for the flogging ofadults, which had up to that time been permissibleby law in a limited number of offences, such asrape or robbery with violence. The number of

boys sentenced to whipping with a light canehad decreased, fifteen and six cases being reportedfor 1949 and 1950, respectively. The Administer-ing Authority observed that, in the light of theCouncil and Assembly recommendations, stepsleading to the reduction of the number of offencesfor which corporal punishment could be awarded,and to its eventual abolition, were being carefullystudied. With respect to adults, it had alreadybeen decided to abolish corporal punishment asa sentence of the courts. However, flogging couldstill be imposed, as before, in the case of fourserious prison offences but could be carried outonly with the approval of the Executive Council.After noting the situation, the Trusteeship Coun-cil at its ninth session urged that measures betaken immediately to bring about the completeabolition of corporal punishment.

The medical services available in Togoland, ac-cording to the Administering Authority's reports,were provided by the Gold Coast Medical andHealth Department, the Native Authorities, andto a lesser extent the missions. The principal di-seases treated were yaws, skin diseases, malariaand pneumonia.

The Administering Authority stated that thesouthern part of the Territory was served by thecentral hospital at Accra in the Gold CoastColony and district hospitals within Togoland atHo (32 beds) and Hohoe; the latter hospital wasbeing extended from twelve to 40 beds. TheNorthern Section was served by a 36-bed hospitalat Yendi which it was planned to extend to 60beds, and by two hospitals at Bawku and Salagaoutside the Trust Territory. The number of dis-pensaries, most of them operated by Native Au-thorities, increased from ten in 1949 to 25 in1950, two of the new dispensaries being just out-side the Territory. This increase, the Administer-ing Authority stated, had resulted in a steadygrowth of public confidence in scientific medicine.The Government ran pre-natal and child welfareclinics at four places in Southern Togoland and twoin the north, one of the latter being outside Togo-land, and it operated a mobile dispensary basedat Yendi. There was a Native Authority maternityclinic at Buem in the south, and another at Nak-panduri in the far north. There were also twoleper settlements in the Territory. The govern-ment medical staff included three doctors—twostationed in Southern Togoland and one, sincethe beginning of 1950, in the north—four mid-wives and 22 qualified nurses. Five missionarieswere engaged in medical work, and there was


one private medical practitioner. The total numberof medical personnel increased from 49 in 1949to 78 in 1950.

The total Government expenditure for publichealth amounted to £59,860 in 1947-48, to £46,-141 in 1948-49 and to £47,330 in 1949-50. Thetotal allocation under the draft ten-year plan forthe expansion of Togoland hospital facilities wasestimated at £91,000, of which £12,000 was pro-posed for the establishment of two model healthcentres. It was also proposed to create moremedical field units as well as to enlarge the scopeof the existing ones, and to build, in the NorthernSection, a sufficient number of dispensaries toensure that no patient would need go more thanten miles for treatment.

While it appreciated the progress made, theTrusteeship Council noted the rather small num-ber of doctors and hospitals, particularly in theNorthern Section, and the shortage of trainedindigenous medical personnel. It recommendedthat the Administering Authority continue toexpand the medical facilities and to train the in-digenous inhabitants in the various aspects ofpublic health to meet the extensive needs of theTerritory, and that it seek further assistance fromthe specialized agencies.


A principal objective of educational policy inthe Gold Coast, including Togoland, accordingto the Administering Authority, is to provide, assoon as possible, facilities for a six-year basiccourse of primary education (the infant-juniorcourse) for every child of school age; this couldbe accomplished to a large extent, it was estimated,over a ten-year period. It was also intended that,ultimately, all children should then attend a four-year senior primary course; the immediate ob-jective was to provide this course for one thirdof the children. The Administering Authority re-ported that the development plan for the GoldCoast as a whole provided for great improvementsin school buildings and equipment, the establish-ment of new schools, a very substantial increasein the output of trained teachers and the expan-sion of technical, vocational and higher educationalfacilities. Control over the educational system wasexercised by the Gold Coast Government. Theestimated Government expenditure for educationin the Trust Territory rose from £84,260 in 1947-48 to £113,363 in 1948-49 and £166,626 in1949-50.

Within Togoland, there were, in 1950, 269infant-junior primary schools, with an enrolmentof 22,472, and 51 senior primary schools, withan enrolment of 5,465. Of the 320 primary schools,312 were in the Southern Section and of these 306were mission or church schools. The other six inthe south and all eight in the north were managedby Native Authorities. The primary schools in thesouth had 985 teachers and those in the northfifteen. The Administering Authority reportedthat 101 primary schools received direct govern-ment financial assistance; 79, with lower standards,were classified as "designated" schools and theGovernment intended to give them every helpshort of direct financial assistance, by such meansas providing trained teachers, the majority of thestaff in these schools being untrained. The remain-ing 140 non-assisted, non-designated schools wereof a still lower standard; many of these, as wellas designated schools, received small grants fromNative Authority funds. There were three otherschools within the Trust Territory, all run bymissions—a newly opened secondary school atHo, which had 35 pupils in 1950 and would beexpanded to a capacity of 100 at the beginningof 1951, and two teacher-training colleges, at-tended by 162 trainees. Togoland pupils also hadaccess to post-primary schools in the Gold Coast,the Administering Authority observed. A collegefor the Northern Territories, to be establishedunder the draft ten-year plan, would probably besituated within Northern Togoland, it stated.

It reported that fees were charged in all schoolsexcept the primary schools in the Northern Sec-tion. In general, the rates were fifteen to eighteenshillings per year for infant classes, 30 shillingsfor junior classes, 48 shillings for senior classes,and £43 (including board) for classes at thesecondary school at Ho. The Administering Au-thority later informed the Trusteeship Council,during its ninth session, that the new Gold CoastGovernment had resolved, among other decisionsaffecting education, that junior primary educationshould be free as from a date yet to be fixed.The Government's policy was to make both pri-mary and secondary education free eventually. TheCouncil was also informed that the transfer ofmanagement of mission primary schools to theproposed new local government authorities wasalready under discussion.

The Council expressed satisfaction with theprogress made in the educational field during1949 and 1950. It noted, however, that there wasa wide discrepancy between progress in the North-


ern and Southern Sections and that much remainedto be done to achieve a satisfactory level of edu-cation throughout the Territory. It therefore rec-ommended that further measures be taken, par-ticularly in the north, and that the AdministeringAuthority consider in this connexion the desir-ability of establishing government or local author-ity schools. The Council also recommended thatsecondary school facilities, adequately supervisedby the Administering Authority, be developed andextended as rapidly as possible, and expressed thehope that the projected teacher-training college inthe Northern Section would soon be in operation.

Although there are no institutions of higherlearning in the Territory, the Administering Au-thority stated that scholarships for qualified Togo-land students were available in the universitycolleges of West Africa and in the United King-dom; 27 such awards had been made. It addedthat overseas scholarships would continue to beavailable at approximately the same level forsome years to come.

In a petition (T/Pet.6/260) examined at theTrusteeship Council's ninth session, S. G. Antorexpressed interest in the fellowships and scholar-ships offered under the United Nations technicalassistance programme and by the United NationsEducational, Scientific and Cultural Organization(UNESCO). He requested that a committee ofthe local inhabitants be established in order toadvise on the selection of persons for these fellow-ships and scholarships.

The Administering Authority in turn observedthat these fellowships had been publicized in theGold Coast Gazette and newspapers; that the 1950UNESCO fellowship designated for a Togolanderhad been awarded to one; and that the Gold CoastScholarship Selection Board, which reviewed ap-plicants for all fellowships, included a Togolanderappointed by the Southern Togoland Council.Since the majority of the fellowships offered underthe United Nations technical assistance programmewere in the field of public administration, theAdministering Authority stated, it was desirablethat the preliminary selection of candidates bemade by persons familiar with the field and withthe overseas opportunities for advanced education;it therefore considered the request of the peti-tioners unrealistic.

The Trusteeship Council noted with approvalthe various scholarship programmes for highereducation and recommended that, in the absenceof institutions of higher learning within Togo-land, an adequate number of scholarships for

study abroad should be provided for qualifiedTogoland students.

In its resolution (405(IX) of 27 July 1951) onthe petition, the Council urged the AdministeringAuthority to continue publicizing the availabilityof scholarships and fellowships and to take allnecessary measures to ensure that Togolandersprofited to the fullest extent from those offered.The Administering Authority was further urgedto ensure that, with regard to scholarships andfellowships designed primarily or specifically forTogoland, the qualifications of candidates wouldbe examined in co-operation with representativesof the inhabitants of the Trust Territory. To thisend the Council asked the Administering Author-ity to consider the possibility of establishing asub-committee of the Scholarship Selection Boardto examine these cases.

The Administering Authority reported thatevening classes for adults continued to be heldat centres in Northern Togoland. In the south, theexperimental mass literacy and community train-ing scheme, started in 1948, was extended in1949 and 1950. In this connexion, the Adminis-tering Authority stated that: (1) three assistantmass education officers were posted to the South-ern Section in 1950 to follow up the activities ofmobile teams and to visit some 80 literacy classcentres; (2) two locally-produced educationalfilms were used as a means of mass instruction; and(3) legislative provision was made for the es-tablishment of a Gold Coast Vernacular LiteratureBoard for the production and distribution of com-munity development literature, as well as a GoldCoast Library Board empowered to organize andmaintain libraries, each of the Boards to have amember representing Togoland. Plans were alsolaid for the extension of this social developmentprogramme to the Northern Section.

The Trusteeship Council commended the Ad-ministering Authority on the considerable successof the mass education programme and recom-mended its continued expansion in the south. Itfurther recommended that every effort should bemade to introduce mass education into the northwhere, the Council stated, it was urgently needed.

4. Togoland, Administered by France

This Territory has a total area of 55,000 squarekilometres and a coastline of approximately 70kilometres.

Throughout the Territory the population isrelatively dense but unevenly distributed. On 31


December 1949, according to the AdministeringAuthority's annual reports,75 there were 980,884indigenous inhabitants and 1,399 Europeans, and,a year later, 997,217 indigenous inhabitants and1,443 Europeans. Lomé, the principal town, had apopulation of 31,458.


Togoland continued to be administered as an"Associated Territory" within the French Unionand French legislation continued to be appliedto it. Accordingly, the Territory is granted theright of representation in each of the organs ofthe French Union, in which legislative powersand the right of political discussion are vested;it elects one deputy to the French National As-sembly, two representatives to the Council of theRepublic, and one to the Assembly of the FrenchUnion.

As in the case of the Cameroons under Frenchadministration, the Trusteeship Council consideredthat, although Togoland's association with theFrench Union was not without benefits, the Ad-ministering Authority should continue to preservethe separate status of the Trust Territory with aview to its eventual self-government or indepen-dence.

Responsibility for local administration of theTerritory is vested in the Commissaire de la Ré-publique, who represents the French Governmentand is directly responsible to the Minister of Over-seas Territories. The Commissaire is assisted by aPrivy Council of eight members, two of whomare Togolanders, and a five-member Administra-tive Legal Council. The Privy Council is composedof high officials, and notables appointed by theCommissaire. The Administering Authority in-formed the Trusteeship Council during its ninthsession that the replacement of this body by oneorganized on a more representative basis wasbeing studied.

The Territory has an elected 30-member Repre-sentative Assembly, which, the Administering Au-thority reported, adopts the Territorial budgetsubmitted by the Administration and has the rightto take decisions or to be consulted on certainsubjects, particularly local administrative matters.While the Assembly may express its wishes andmake proposals on local Territorial matters, itmay not express an opinion on political problems.It meets twice a year in ordinary session; it mayalso hold extraordinary sessions and held foursuch sessions in 1949 and 1950. Appeals for the

extension of the Assembly's powers had in thepast been made by members of the Assembly andhad been recommended by the Trusteeship Coun-cil. In 1950 the Administering Authority reportedthat a Bill proposing a very definite extension ofthe Representative Assembly's powers was beforethe French Parliament. It was the AdministeringAuthority's intention, it was stated, to transfer amaximum number of questions on which theAssembly was only consulted to the category oftopics requiring the Assembly's decision.

In a petition (T/Pet.7/169) examined by theTrusteeship Council at its ninth session, the Repre-sentative Assembly protested against the Adminis-tration's decision not to communicate to the As-sembly documents relating to the Anglo-FrenchStanding Consultative Commission for TogolandAffairs (dealing with the unification question).76

The Assembly maintained that it was therebyexcluded from discussing questions likely to haveimportant repercussions on the Territory. TheAssembly also asked that the law barring it fromdiscussing political matters be amended as soonas possible since, it stated, all important questionswere more or less political. On behalf of theAdministering Authority, it was argued (T/-AC.41/SR.19) that the Administration's decisionwas fully in accord with the legislation definingthe powers and functions of the Assembly. TheAdministering Authority again pointed out, how-ever, that a bill to extend these powers and thusplace Togoland on the path to independence wasbefore the French National Assembly.

The Council recalled its previous recommenda-tions that the Administering Authority shouldprogressively extend the Assembly's powers, par-ticularly in the field of legislation. It expressed itssatisfaction at the Administering Authority's in-tention to amend the legislation for this purposeand hoped that it would be informed in 1952 thatincreased legislative authority had been granted tothe Assembly. By resolution 413(IX), adopted on27 June 1951, the Council drew its recommenda-tions concerning the Representative Assembly to

75 France, Rapport annuel du Gouvernement français à

l'Assemblée générale des Nations Unies sur l'Adminis-tration du Togo placé sous la tutelle de la France, année1949, and Rapport . . . année 1950. For detailed discus-sions of these reports in the Trusteeship Council, seesummary records of the ninth session of the Council(5 June-30 July 1951); summaries of the observationsof individual members are included in the Council'sreport to the Assembly (A/1856). For general discus-sion in the Assembly concerning conditions in TrustTerritories, see pp. 768-72.

76 See pp. 751ff.


the latter's attention, and at the same time in-formed the Assembly that it would continue toexamine the question each year.

Of the 30 members of the Assembly, accordingto the Administering Authority's reports, six areelected by an electoral college composed of personshaving the status of French citizens and 24 by anelectoral college of qualified indigenous inhabitantswho are not French citizens. While no specialqualifications are required for registration byFrench citizens, the other group must satisfy oneof a number of requirements, of which the mostusual is ability to read French or Arabic.

The Administering Authority reported that thenumber of electors had again increased—to 16,830in 1949 and to about 28,000 in 1950. It consideredthis increase another step toward the final goal ofuniversal suffrage and an indication that thepopulation was becoming more conscious of itspolitical rights and responsibilities. Efforts to en-courage the creation and maintenance of civilregister offices were also being made with a viewto promoting participation in electoral activities.In addition, the Administering Authority informedthe Trusteeship Council at its ninth session thatthe qualifications for voting had been extended,by law of 23 May 1951, to all heads of familiesand to mothers of two children. A total of 32,500persons registered for the June 1951 electionsto the French National Assembly, it stated.

The Trusteeship Council noted with satisfactionthe considerable progress made in increasing thenumber of electors. At the same time, it urged theAdministering Authority to continue its effortsin this field and expressed the hope that continuedprogress would be made towards universal suf-frage. It recommended, moreover, that the Ad-ministering Authority establish a single electoralcollege of voters for the Representative Assemblyas soon as possible.

Several petitions protesting against the electionproceedings were received by the Council fromAugustino de Souza, President of the Unite togo-laise (T/Pet.7/212 & Add.1-2 & 228 & Add.1),and several branches of that party (T/Pet.7/225,227 & Add.1, 235) and from Canton Chiefs AgouPebi IV and Panta Kutumua V (T/Pet.7/236).They claimed that the electoral lists were revisedin such a way as to exclude supporters of theUnite togolaise, one of the two political parties,and that the procedures followed in the electionsas well as in the registration were contrary tothe electoral law of 23 May 1951. The registerswere drawn up, not, as provided by the law, by

the Commission for the Revision of ElectoralRegisters, composed of representatives of bothparties, but by chiefs, who, the petitioners stated,were in reality administration officials and in addi-tion were obliged to become members of theParti togolais du progrès; the mistakes which tookplace, the petitioners claimed, were not rectifiedby the Commission for the Verification of theRegisters. Similarly, the electoral cards were dis-tributed by chiefs rather than by two-party com-missions. Moreover, according to the petitioners,the Administration demanded that all those apply-ing for registration produce an identity card, al-though Togolanders had never had such a card,which had never before been required. After per-sistent protests by the Unite togolaise, the peti-tioners stated, the Administration had agreed toadmit other identity papers for the third andfinal day of registration.

The petitioners submitted that the allegedlyfraudulent election practices were designed toexclude supporters of the Unite togolaise and re-sulted in a disproportionate increase of voters inthe north, where this party had fewer supporters,compared with the south, despite the greaterlack of identity papers in the north and the higherdegree of advancement and interest in elections inthe south. The petitioners therefore challengedthe election of Nicholas Grunitzky, candidate ofthe Parti togolais du progrès and asked for theannulment of the elections. The petitioners, inparticular Augustino de Souza, considered that aslong as the local Administration remained hostileto the unification of the Ewe people, it could notbe entrusted with the task of holding an impartialelection. They asked that Togoland be given self-government so as to put an end to the arbitrarymanner in which the country's stability, progressand peace were being endangered.

In another petition (T/Pet.7/221 & Add.1),the Parti togolais du progrès asserted that theelections took place under normal circumstancesdespite provocations and intimidations by theUnite togolaise. They concluded that the victoryof the candidate of their party, elected by 16,255votes out of a total of 26,513 votes cast, wasstriking proof that that party expressed the wishesof the majority of the population and was also asolemn condemnation of Ewe unification.

The Administering Authority informed (T/-AC41/SR.21) the Trusteeship Council that theFrench National Assembly, the competent organwith regard to legislative elections, had before ita request from Martin Aku, the defeated candidate


of the Unite togolaise, for the invalidation of theelections and would decide on the matter in thenear future. It denied allegations made by theUnite togolaise that the Administration had shownany favouritism in connexion with the registra-tions and elections. These complaints, it was felt,were a manifestation of bitterness on the part ofthe defeated party. It explained that an identitycard had not been required but simply an identitydocument, such as a labour card, a military servicecertificate or a tax receipt. It stated that moreindividuals in the north had identity documentsin view of the greater extent of military serviceand greater difficulty of evading taxes under theprevailing system of chiefdoms. Replying to theclaim that the southern section should have morevoters than the north because it was more highlydeveloped culturally, the Administering Authoritydrew attention to the fact that the new categoriesof voters—women who had two children or werethe heads of families—were not based on the ex-tent of education. It felt that the complaints thatAdministration agents rather than two-party com-missions had distributed voting cards were basedon a deliberate misunderstanding of the role ofthe commissions, which were in charge of verifi-cation and supervision, but not of distributingcards. Furthermore, the elections had been carriedout without incident or the need for police inter-vention, and voting had taken place in all pollingstations in the presence of a representative of eachcandidate. All the proceedings, the AdministeringAuthority maintained, had been in accordancewith the electoral law.

The Administering Authority's observationswere noted by the Trusteeship Council, whichdrew them to the attention of the petitioners byresolution 414(IX) of 30 July 1951. The Councilasked the Administering Authority to report onthe action taken by the French National Assemblyand expressed the hope that continued effortswould be made to ensure that the inhabitants ofTogoland were fully informed of the electionregulations.

The Administering Authority reported a num-ber of reforms in local administration. The statusof chiefs, whose appointment requires Adminis-tration approval and who cannot be removed orsuspended from office save in exceptional circum-stances, was, it was stated, under review by theFrench National Assembly. Meanwhile, regulationswere adopted in December 1949 providing thatthe indigenous administration of the Territory becarried out by chiefs of varying rank appointed

in accordance with customary procedure and as-sisted by traditional councils. The Councils ofNotables, composed of administrative officers,chiefs and notables, were to be replaced by electivedistrict and regional councils for rural areas. Thenew councils, authorized in 1946, were expectedto begin functioning at the end of 1951.

Municipalities had been established in centreswhere it was thought the public services could berun competently. Until 1950, only the communeof Lomé enjoyed municipal government. It wasraised to a third, or highest, degree communemixte in 1950, with a municipal commission elect-ed by direct universal suffrage rather than ap-pointed by the Administration, as in the past, andits further elevation to the same status as Frenchcommunes was under consideration. Anécho wasalso made a third-degree commune in 1950. Bothmunicipal commissions, elected in November1950, were composed entirely of indigenous in-habitants, including, in the case of Lome, onewoman. The Administering Authority informedthe Trusteeship Council at its ninth session thatthree more towns, Palimé, Atakpamé and Sokodéhad been raised to the same status in 1951.

The developments in local government werenoted with satisfaction and approval by the Coun-cil, which expressed the hope that the Adminis-tering Authority would find it possible to assimi-late the chiefs into the administrative structureand would soon implement the plans for munici-pal and local government and extend them pro-gressively to all parts of the Territory.

According to the Administering Authority'sreports, the administrative personnel in 1950comprised 176 Europeans, eight of whom heldsubsidiary posts, and 5,237 Togolanders, 185of whom held higher posts (as compared with183 Europeans, five of whom held subordinateposts, and 4,841 Togolanders, 248 of whom heldhigher posts, at the end of 1949). The higherposts held by Togolanders included those of policecommissioners and inspectors, assistant foresters,teachers, assistant topographers, African doctors,midwives, senior clerks, chiefs of section and de-partments, and postmasters. Women holding thesame qualifications were eligible for the same postsas men in education, health and general adminis-tration; their number had increased from 77 in1948 to 120 in 1950.

The Trusteeship Council considered increasedindigenous participation in the Administration ofthe Territory essential for its advancement towardsself-government or independence. Accordingly, it


recommended that the Administering Authorityincrease the number of the indigenous inhabit-ants holding public office, especially in seniorposts, and to this end continue to give them thenecessary training.

In 1950, a study was undertaken of the ques-tion of employing local staff in higher officialgrades, the Administering Authority stated, and,in particular, of ways of opening such employ-ment to African officials who did not possess thequalifications required by the regulations, but hadsatisfactorily filled responsible posts.

Reporting on the judicial system in the Terri-tory, the Administering Authority stated that thePalimé customary tribunal, established as an ex-periment in 1948 and composed entirely of in-digenous inhabitants, had proved a success, andfifteen more tribunals of this kind had since beenestablished. Only the Mango region was still with-out such a tribunal. Among other developments inthe judicial field, the Administering Authoritycited the steps taken to divest administrative offi-cers of judicial functions and the extension by de-cree of the competence of justices of the peace.It was also intended to increase the number ofcareer magistrates. These measures were notedwith approval by the Trusteeship Council, whichrecommended that the Administering Authoritytrain sufficient indigenous career personnel to fillall posts in the judiciary.


Almost all the inhabitants of the Territory de-pend on agriculture for their livelihood. The totalproduction of food crops, which fell to 540,024tons in 1949, rose to 642,698 tons in 1950. Thetotal production of industrial crops, the most im-portant of which are palm oil and kernels, copra,cotton, cocoa, coffee, groundnuts, tapioca and sheabutter, also fell in 1949, to 66,002 tons, 20,782tons of which were exported. In 1950, it rose to82,238 tons.

Of 20,000 square kilometres of land suitablefor cultivation, the Administering Authority re-ported, almost half was idle, being inaccessible,infested with the tsetse fly or without water. How-ever, campaigns to increase food production hadsuccessfully minimized the risk of famine, whichhad been particularly acute in the Lama-Kara area.In 1949, special attention was paid to the im-provement of crops and selection of seeds; 68tons of chemical fertilizers had been applied fordemonstration purposes on coffee, cocoa and co-conut plantations belonging to indigenous inhabit-

ants; a tractor was used for various projects at theGlidji experimental farm, and some initial dem-onstrations with two power-driven cultivators wereheld for indigenous farmers. There was muchscope throughout the Territory for the use ofdraught animals for cultivation, the Administer-ing Authority observed, and the use of power-driven cultivators was likely to spread rapidlythroughout the red earth region of southern To-goland. Efforts were continued in 1950, specialstress being laid on maintaining soil fertility and,therefore, on the adoption of improved agricul-tural methods. The results of a survey by the Bu-reau of Soils in 1950 of several regions of theTerritory made it possible to envisage agriculturaldevelopments the possibilities of which had earlierappeared very limited.

The Administering Authority reported greatprogress in equipping the stock-breeding servicewith instruments and medicines. In 1950, theservice had to combat several epidemics of con-tagious diseases. The construction of a laboratoryfor producing vaccine and serum at Dapango wascompleted. Special concern with the water prob-lem was expressed by the Administering Author-ity. It stated that exploratory well-drilling hadbeen undertaken all over the Territory; work onbringing water to Tsévié and the neighbouring vil-lages was in progress, and numerous wells werebeing sunk in the Anécho district.

The Trusteeship Council commended the Ad-ministering Authority for the efficient measurestaken to promote the agricultural development ofthe Territory. It suggested that the AdministeringAuthority reaffirm its policy of encouraging in-creased food production and recommended that itgive continued attention to providing indigenousfarmers with agricultural services, such as trainingin modern methods of farming, the improvementof plant strains and the combating of pests, andthat it expand its already successful campaign forsoil conservation.

Fishing is carried on along the whole coast ofTogoland and in the coastal lagoons. Sea fishingis collective and the catch is divided according tocustom. The Administering Authority reportedthat there was considerable trade in dried orsmoked fish, but indicated that there was littlelikelihood of developing a commercial fishing in-dustry.

As regards mining, it was found in 1949 thatthe chromite deposits on Mont Ahito were favour-ably situated and that the ore, if worked, mightbe conveyed to the railway by the use of a gravi-


tation system. The steps taken to ascertain the ex-tent and value of minerals were noted by theTrusteeship Council, which expressed the hopethat the Administering Authority would providefurther information on the subject, with specialreference to the exploitation, of chromite andbauxite deposits.

The Administering Authority considered that,owing to the poor quality of the subsoil and theirregularity and lack of waterways, Togoland couldnot become an industrial country in the near fu-ture. The Territory's industries were limited tofour cotton and three kapok ginning mills, andone palm oil extracting mill which had been setup and presented to the Territory by France. Onlysuch small undertakings as a grated coconut fac-tory set up in 1949, or a projected tapioca factory,could be envisaged for the future.

The industrial activities of the indigenous in-habitants were confined to some processing ofagricultural products and the manufacture of cer-tain building materials, such as bricks and par-pens. These activities were carried out under theauspices of indigenous provident societies. Therewere nine such societies in the Territory engagedin promoting production, the improvement of theharvest and the preparation and sale of the goodsproduced. They granted loans to their membersthrough a joint fund; in 1949 the loans grantedamounted to 400,000 francs and in 1950 to2,650,000 francs, besides a few short-term loansgranted to provident societies themselves. TheAdministering Authority reported that a first at-tempt at setting up co-operatives had failed butthat, at the request of representatives of the pop-ulation who wished the Administration to organ-ize such societies, statutes for producers and con-sumers co-operatives had been drawn up and dis-tributed on a large scale. Thus far, it stated, theyhad not aroused any interest.

The Trusteeship Council expressed its disap-pointment at this failure, but hoped that the Ad-ministering Authority would continue its effortsin this direction and recommended that it educatethe indigenous inhabitants with a view to stimu-lating their interest in and understanding of co-operative institutions.

In 1950 the value of the Territory's foreigntrade amounted to 5,363,159,500 francs77 (3,786,-744,500 francs in 1949), representing 1,528,141,-500 francs in exports (844,714,000 francs in1949), 1,824,020,000 francs in imports (1,454,-430,000 francs in 1949), 35,455,000 francs in re-exports (14,512,000 francs in 1949) and 2,175,-

543,000 francs in transit (1,473,088,500 francsin 1949). The 1949 drop in exports was attrib-uted basically to the slump in tapioca exports,which fell from 11,609 tons in 1948 to 2,270tons in 1949, and also to a drop in exports ofpalm kernels and palm oil. In 1950 the export ofpalm kernels was almost double that of 1949.

Most of the export (80 per cent of the 1949and 45 per cent of the 1950 tonnage) went toFrance. The Gold Coast was the second largestcustomer, followed by Morocco, Germany and theNetherlands. Similarly, France and its territoriesaccounted for 63.4 per cent of the total importsin 1949 and 58.8 per cent in 1950, the UnitedKingdom and British territories in Africa for 14per cent in both years, and the Union of SouthAfrica for 9.2 per cent in 1949. Germany andJapan were assuming increasing importanceamong the Territory's suppliers, and imports fromthe United States, chiefly under the Marshall Plan,still played an important part in the economiclife of the Territory.

The Administering Authority reported that fullfreedom of trade had been almost completelyrestored by the end of 1950. The system of freecompetition had been re-established in respect ofproduction and export prices and only slight re-strictions remained. For instance, coffee could beexported only to hard currency countries, andcotton remained subject to an official price scale.Internal trade was confined to the marketing offoodstuffs and retail trade in imported goods;there were about 800 indigenous traders. Externaltrade remained in the hands of British and Frenchfirms.

The Territory's total revenue and expenditure,according to the Administering Authority's annualreports, was 1,039,859,772.40 francs and 891,216,-310.50 francs, respectively, in 1949 and 991,738,-350 francs and 798,318,415.80 francs in 1950.Customs duties remained the principal source ofrevenue, amounting to 491,742,812.20 francs in1949 and 494,300,000 francs in 1950. Direct tax-ation amounted to 103,012,288 francs (or 18.36per cent of the total ordinary revenue) in 1949,and 111,838,053 francs (or 14.3 per cent) in1950. Taxes were paid only in kind, and onlyadministrative proceedings could be taken againstdefaulting taxpayers, the Administering Authoritystated. It outlined the steps taken to replace thehead tax by a progressive income tax. Thesemeasures received the commendation of the Trus-

77

Throughout this section, francs=CFA (Coloniesfrançaises d'Afrique) francs.


teeship Council, which recommended the estab-lishment of a general system of income tax assoon as possible.

In addition to expenditure from the territorialbudget, the ten-year plan for the economic andsocial development of Overseas France providedfor a total expenditure of 5,816,070,000 francsfor Togoland. For economic development, roughly637 million francs, it was stated, is to be spent onagricultural production, 47 million on forestry,47 million on livestock, 1,291 million on railways,1,233 million on highways and bridges, 51 mil-lion on ports, 168 million on communications,and 359 million on urban and rural works. About716 million is to be spent on health, and 686million on education. By the end of 1950, anexpenditure of 2,219 million francs had beenauthorized and 1,422 million had been disbursed.

The Administering Authority pointed out that,while it was continuing its efforts, as indicatedby these allocations, to improve and modernizeroads, railways, ports and airfields, these facilitieswere already, on the whole, adequate for the needsof the Territory. It added that, since 1 January1950, automobile traffic had been able to movefreely over "all roads in the Territory.

The Trusteeship Council, after noting the sat-isfactory results already attained through the ten-year plan and the Administering Authority's ef-forts to increase production, recommended thatthe Administering Authority encourage active par-ticipation by the indigenous inhabitants in allaspects of the economic life of the Territory andparticularly in policy-making and managerial ac-tivities.

In this connexion, the Administering Authorityhad stated in its 1950 report that indigenous par-ticipation depended entirely on individual quali-fications; the largest business in the Territory wasunder the direction of a Togolander and a Togo-land engineer had just set up a building com-pany. The relevant legislation, it stated, was basedon the principle of full equality and no discrimi-nation was allowed on grounds of origin or race.The Council nevertheless noted that the Presidentand Treasurer of the Chamber of Commerce must,by law, be French citizens and recommended thatthe Administering Authority consider the possi-bility of opening these posts to indigenous inhab-itants.

Under the system of land tenure, the land isdivided into three main categories: (1) publicor private domain, of which only the latter can betransferred by sale or concession; (2) land held

by indigenous communities or individuals underrules of local custom, a vague form of ownershipwhich, according to the 1950 report, is a sourceof dispute, in particular when the Administrationproposes to classify domain lands, apparently un-occupied, as "vacant and ownerless land"; (3)land in respect of which proceedings for therecognition of property rights have been taken.

By 31 December 1949, a total of 6,814 hectaresof land had been claimed for registration in theLand Register by the indigenous inhabitants, asagainst 3,252 hectares in 1948; a total of 553hectares of land had been registered in the namesof non-indigenous inhabitants, as against 546hectares in 1948; land forming the private domainof the Territory amounted to 2,963 hectares, asagainst 2,403 hectares in 1947. Five sixths ofthe land registered in the names of indigenousinhabitants was owned by private individuals.

Classified forests and reafforestation areas be-longing to the domain of the Territory amountedin 1950 to 38,450 hectares, or .7 per cent of theTerritory's land area and 1.75 per cent of theforested areas. The Administering Authority re-ported that the forestry service had launched apropaganda campaign to overcome the people'shostility to the classification of uncultivated landsand to convince them of the importance of for-ests in soil conservation and the regulation ofwaterways.

The Trusteeship Council expressed the hopethat the Administering Authority would continueto take measures to educate the population on theimportance of the preservation of forests for thewelfare of the Territory so that local oppositionmight soon be overcome.


According to the Administering Authority's re-ports, the removal of restrictions on the sale ofimported goods and the revision of wages hadlargely contributed to raising the standard of liv-ing. Following an agreement reached in Decem-ber 1950, monthly wages of an unskilled labourerrose from 3,100 francs to 3,725 francs, and thoseof a skilled labourer from 10,600 francs to 11,975francs. At Lomé, the wages of unskilled labourersrose from 20 francs a day in 1946 to 72 francsin 1949 and 82-95 francs in 1950. The increasewas even greater in the case of civil servants, theAdministering Authority observed. Furthermore,minimum wages were supplemented by senioritybonuses and, in certain branches of industry, out-put bonuses and end-of-year gratuities. While no


study had been made of the local domestic econ-omy, the Administering Authority stated, cost-of-living indices, based on the usual diet and mini-mum requirements of the indigenous inhabitantwere taken into account in establishing minimumbasic wages. The indices were provided by therepresentatives of the trade unions.

The Administering Authority noted a greatimprovement in nutrition, clothing and housing,particularly in the south and the urban centres.It reported that the town plan for the moderni-zation of Lomé was being carried out; eleven anda half kilometres of streets were laid out in 1950and lighting facilities were being extended. In1950, a total of 150 buildings were constructedby private individuals as well as eighteen dwellinghouses for civil servants, ten of which were as-signed to Africans. Work approved in September1950 on the town plan for Sokodé was to beginshortly and the town's lighting system would beinstalled in 1951.

The Trusteeship Council noted an upward trendin the cost of living and recommended that theAdministering Authority keep the relationshipbetween wages and cost of living under constantreview and take the measures necessary to ensurethe continued improvement in the standard ofliving.

The number of trade unions increased from 25,with 3,076 members, in 1948, to 37, with 3,750members, at the end of 1950. Two new tradeunions were being formed. Nineteen workers tradeunions had combined to form an association oftrade unions.

In 1950, the Administering Authority reported,a draft labour code for the French Union, pre-sented to the French National Assembly in 1947,was being discussed and a number of articles hadbeen voted on. The Administering Authority laterinformed the Trusteeship Council, during its ninthsession, that the text of the Labour Code had beenadopted by the Assembly of the French Union andby the National Assembly, and that it would bediscussed by the Council of the Republic in thenear future. It added that, although there was nocompulsory insurance scheme, a legislative Bill onprevention of and compensation for accidents atwork and occupational diseases was being studiedand would be submitted to Parliament in the im-mediate future. Various risks were already coveredby free medical assistance covering medical atten-tion, diseases and maternity.

After recalling that it had in 1950, inter alia,expressed its regret that the labour code was not

yet law, the Trusteeship Council asked the Ad-ministering Authority to make this documentavailable as soon as possible and expressed thehope that the code, when promulgated, wouldfurnish an adequate basis for the protection ofthe rights and interests of indigenous labour.

Commenting on the penitentiary system, theAdministering Authority reported that an inspec-tion commission ensured the observation of regula-tions, particularly in respect of nutrition, hygiene,work, and medical care. By a law of 12 November1950, the provisions enabling convict labour to beplaced at the disposal of private individuals andundertakings were repealed. Another law estab-lished a savings plan for prisoners, which providedthat prisoners receive half their earnings imme-diately and the rest on discharge. A reformatoryfor juvenile delinquents was organized at Tovéin 1949; it provided primary educational coursesand training in carpentry work. At the end of1950, the Administering Authority indicated, therewere seven juveniles at the centre.

According to the annual reports, the enjoymentof human rights and fundamental freedoms, in-cluding freedom of assembly, labour, thought,conscience and worship, are guaranteed to all in-habitants of Togoland without distinction. Thelegislation on freedom of the Press and freedomof association was modelled on that of France.Legislation in force placed no restriction on themovement of workers inside the Territory, andrecognized no racial discrimination; acts of dis-crimination would be liable to judicial prosecution.The penal law was the same for all—no-one couldbe arrested except under a warrant issued by thecompetent magistrate and no arrest could be madeby administrative or police order.

Augustino de Souza and the Women's Branchof the Unité togolaise complained (T/Pet.7/237& Add.2) that on 5 July 1951, Mr. de Souza'shouse was surrounded by troops in the presenceof the Mayor, Prosecutor and Police Commissionerand that policemen clubbed women and youthsunder the pretext that some ten women gatheredin the inner court were violating municipal Ordin-ances issued on the previous day prohibiting publicmeetings. Mr. de Souza considered such terroristicmethods liable to give rise to incidents whichcould be used by local authorities to "eliminate"leaders of the Unité togolaise under the pretext ofquelling a revolt. On 12 July 1951 he informed(T/Pet.7/237/Add.1) the United Nations thatall public meetings organized by the Unité togo-laise had been prohibited in the Lomé region and


that in other districts various steps had been takento prevent meetings of that party's members. Heasked the United Nations to make representationsto the Administering Authority with a view tosafeguarding the freedom of speech and assemblyguaranteed under the Trusteeship Agreement.

Replying to these charges, the AdministeringAuthority explained (T/AC.41/SR.22) that theCommissioner had decided on 3 July 1951 toprohibit public meetings of the Unité togolaise atLomé in view of the disturbed conditions pre-vailing since the elections to the French NationalAssembly and that the prohibition was brought tothe notice of the public through the usual admin-istrative channels. It stated that police officers hadgone to Mr. de Souza's house to disperse a crowd,which had gathered in spite of the prohibition,and had only entered the house to rescue one oftheir members who had been forcibly taken insideby the demonstrators. It maintained, however, thatthere had been no infringement of the freedom ofassembly, since the authority responsible for publicorder was entitled to prevent an assembly if itwas a threat to the peace.

By resolution 415(IX) of 30 July 1951, theTrusteeship Council decided that no action wascalled for at that time on the basis of the petitions,but informed the petitioners that it examined thequestion of human rights and fundamental free-doms annually.

The health service, according to the Adminis-tering Authority's reports, is divided into thestationary indigenous medical assistance service,which is responsible for therapy, and the mobilemedical and prophylactic service, which arrangesits visits in such a way as to examine the wholeof the population once a year. The appropriationsfor the health service under the local budget in-creased from 66,321,000 francs in 1948 to 108,-994,000 francs in 1949 and 186,686,000 francs, or20 per cent of the ordinary expenditure, in 1950.In addition, 175 million francs of the allocationunder the ten-year plan for the modernization andextension of the health service had already beenspent, and 139 million was to be spent during theyear 1950-51. From 1948 to 1950 inclusive, 25dispensaries and twelve permanent medical postshad been established and, in 1950, a total of 40pavilions and various facilities for the modern600-bed hospital under construction at Lomé werecompleted.

The medical staff in 1950 included twelvedoctors of medicine (two of them indigenous)and seventeen "African doctors," 26 midwives

(including one European), and other personnel.Twelve Togoland students took medical coursesin France, seven students took courses in pharmacyand one student took courses in dental surgeryduring that year. Since October 1950, the Admin-istering Authority reported, Togoland graduatescould pursue their medical studies at the Dakarschool. Thus, it observed, the training of "Africandoctors" would come to an end. In future theywould be replaced by doctors of medicine withdegrees obtained in the Metropolitan territory. Inthe course of the ninth session of the TrusteeshipCouncil, the Administering Authority stated thata recent decree enabled African doctors, pharma-cists and midwives to acquire state diplomas afterhaving passed a special examination and a courseof study in France.

An epidemic of cerebro-spinal meningitis hadoccurred in the Lama-Kara area in 1949 and theAdministering Authority stated that 10,531 caseshad been reported in that year and 2,804 in1950. It added, however, that preventive actionwas still being taken.

Special efforts, it was stated, were made toensure maternal and child welfare, particularly byeducation and the work of African matrons, whoreceived regular pay and were supervised bydoctors; 59 matrons were engaged in the villagesand centres of the Territory. In addition, in thetwelve maternity homes in Togoland there were6,412 deliveries in 1950, as against 5,544 in 1949and 4,320 in 1948, and, since April 1950, anti-tubercular vaccinations were given in maternityhomes.

The Trusteeship Council noted with approvalthe important advances made in the health servicesin the Territory. It expressed the hope that theAdministering Authority would find it possiblestill further to increase the number of hospitaland other medical facilities, and the facilities foradvanced training open to the indigenous inhabit-ants, including the provision of scholarships andother forms of financial assistance.


The Administering Authority stated that theobjective of education, which was free at all levels,was to fight against illiteracy and to train thenecessary staff for the administration and the eco-nomic development of the Territory. Local budgetappropriations for education amounted to 113million francs in 1950, the Administering Author-ity reported, and the estimates for 1951 amountedto 158.8 million francs, or more than 15 per cent


of the total budget of the Territory. In addition,233 million had already been committed under theten-year plan, which provided the bulk of thefunds for educational development. The Admin-istering Authority believed that if the constructionof schools continued at the same rate for a fewmore years, education should become universalwithin five years.

Primary education is given in government andmission schools; the latter, subsidized by the Gov-ernment, follow the same educational programmeand are under the supervision of the EducationDepartment. Total enrolment in the two types ofschools increased from 24,601 in 1948 to 37,285in 1949; and at the end of 1950, 21,504 wereattending government schools and 19,329 privateschools, the total representing 30 per cent of thewhole school-age population. In 1950, a total of1,270 students received primary school certificates,as compared with 749 in 1949.

The Administering Authority indicated that 20per cent of the children attending school weregirls; it pointed out that in the Moslem districtsin the north existing customs were unfavourableto education for girls, while in the south, on theother hand, schools for girls were already operatingwith qualified teachers.

As regards teacher-training, the AdministeringAuthority reported that the staff had been reor-ganized and European and indigenous teachersplaced on a completely equal footing, the onlydistinctions made being on the basis of diplomas,and further steps had been taken to recruit andtrain teachers. At the teacher-training school atAtakpamé, four-year courses for pupil-teacherswould be given, leading to the elementary certi-ficate, after which the candidates would spend acertain period in schools as student-teachers.

The Administering Authority stated in its 1950report that secondary education was now offeredlocally at two government schools, one of whichwas at Lomé—the only school with a full courseleading to the baccalaureate—and at three religiousschools. At the end of 1950, the number of pupilsreceiving secondary education, including teacher-training, was 855, of whom 437 were in thegovernment schools and 398 in the religiousschools. Seven pupils received baccalaureate diplo-mas in 1950; it was expected that from 50 to 100pupils would sit for this diploma in the nearfuture. Almost all the pupils had the benefit ofTerritory scholarships. In 1950, a total of 32Togolanders were receiving secondary education

in France and two receiving training in domesticscience.

The Sokodé Trade School, which had receivedthe necessary equipment and was soon to receivequalified staff, provided technical education; atthe end of 1950, this school had 69 pupils. Therewere also fifteen internes at training centres inFrance.

With respect to higher education, the Admin-istering Authority stated that the Territory wastoo small to support a university, but that, in 1950,a total of 57 scholars were pursuing higher studiesin Metropolitan France.

With reference to adult education, 105 courseswere opened in 1950 with an attendance of 4,975;further, a mobile cinébibliobus was organized totour the villages with a lecturer, library andcinema.

The Trusteeship Council commended the Ad-ministering Authority for offering free education,for its intention to establish universal primaryeducation within five years and for the substantialincrease in the appropriations for education.

After noting that the two chief obstacles to thefurther development of primary education facilitieswere the difficulty in the procurement of buildingmaterials and the lack of teachers, the Councilexpressed the hope that the substantial schoolbuilding programme envisaged under the ten-yearplan would not be held up and that the Adminis-tering Authority would continue to expand teacher-training facilities. It also recommended that theservices rendered by the mobile cinema and libraryvans be extended in view of the importance ofpromoting mass education and reducing illiteracy.

The language of instruction in the Territory isFrench, and the Trusteeship Council had in thepast asked the Administering Authority to con-tinue studying the possibility of using vernacularlanguages in education. In 1950, the Administer-ing Authority reported that instruction in the Ewelanguage had been organized in the Ewe regionsof the south, but that the experiment had failed;of 115 pupils enrolled, only about ten remained atthe end of a six-month course. It stated that thelanguage did not lend itself to scientific study andthat textbooks were lacking. The AdministeringAuthority also pointed out that the RepresentativeAssembly had recommended the organization ofinstruction in the Mina, Cotocoli and Haoussalanguages. It later informed the Trusteeship Coun-cil, during the ninth session, that it had been askedto appoint a committee to study the problem, in


view of the desire expressed by educated Africansto see local languages used in schools and of theconsiderable difficulties experienced in the firstexperiment. Meanwhile, it added, certain coursesin schools and adult classes were given in locallanguages.

A petition (T/Pet.7/124) from Augustino deSouza, on behalf of the Unité togolaise, protestedagainst the obstacles placed by the AdministeringAuthority in the way of education in the Ewelanguage, which the Togolanders considered asessential to their emancipation. The AdministeringAuthority observed, however, that, in spite ofpractical difficulties, the measures adopted by theAdministration were in accordance with the wishesof the petitioner.

The Administering Authority's efforts werenoted with interest by the Council, which urgedthe Administering Authority to continue to giveas many details as possible concerning the use ofthe vernacular languages in education in its futurereports.

By resolution 411(IX) of 27 July 1951, theCouncil informed Mr. de Souza of the Administer-ing Authority's observations and assured him thatit examined the question every year.

5. The Ewe and Togoland UnificationProblem78

The assistance of the United Nations for theunification of the Ewe people who live in theBritish Gold Coast Colony, Togoland under Britishadministration and Togoland under French admin-istration was first sought by the All-Ewe Con-ference in 1947. The Comité de l'Unité togolaiseassociated itself with the objectives of the All-EweConference. Concurrent demands arose for theunification of the two Togolands, as distinguishedfrom the unification of the Ewe-inhabited areas,the chief proponents being the Togoland Unionand the Togoland Congress. Opposition to theseunification movements was led by the Parti togolaisdu Progrès and the Union des Chefs et des popu-lations du nord du Togo of Togoland under Frenchadministration.

Because of the divergent views on the question,the two Administering Authorities decided (T/-702) to extend the composition and functions ofthe Standing Consultative Commission for Togo-land Affairs, set up in 1948, in order to make itthe instrument for ascertaining the real wishes andinterests of all the peoples of the two Trust Ter-ritories. Accepting the Anglo-French proposal, the

Trusteeship Council, on 14 July 1950, expressedthe hope that the Administering Authorities wouldensure that the Commission would equitably repre-sent the different sections and groups of Togoland(resolution 250(VII)).

In addition to the official chairmen and vice-chairmen, the enlarged Consultative Commissionwas to be composed of seventeen representativesof the people of Togoland under British admin-istration (fifteen elected and two nominated, oneby the All-Ewe Conference and one by the Togo-land Union) ; and 28 representatives of the peopleof Togoland under French administration (26elected and two nominated, one by the Partitogolais du progrès and one by the Comité del'Unité togolaise). Before the elections, it wasdecided to increase the number of representativesnominated by the last two parties to two each,bringing the number of representatives of Togo-land under French administration to 30.

Following complaints by Augustino de Souza,the President of the Comité de l'Unité togolaise,concerning the methods prescribed for elections tothe Commission in Togoland under French admin-istration, and claims to the contrary, the GeneralAssembly, in resolution 441(V) of 2 December1950, impressed upon the Administering Author-ities the necessity for conducting elections to theCommission in a democratic manner to ensure atrue representation of the people and recom-mended that France promptly investigate thepractices complained of by Mr. de Souza.

a. CONSIDERATION BY THE TRUSTEESHIPCOUNCIL AT ITS EIGHTH SESSION

Further petitions relating to the conduct of theelections in Togoland under French administra-tion, held in two stages in October 1950, werebefore the Trusteeship Council at its eighth ses-sion. The Unité togolaise demanded that the repre-sentatives to the Commission be elected by directuniversal suffrage. It claimed that the two-stageelectoral system had been organized in such a wayas to ensure that the Consultative Commissionwould be dominated by anti-unification groups andnot truly representative of the people, the majorityof whom, the Unité togolaise maintained, desiredunification. The petitioners charged that theFrench Administration was arresting and otherwiseattempting to intimidate members of the Unité

78 See also sections on Togoland under British adminis-

tration and Togoland under French administration, above,and Y.U.N., 1950, pp. 749-57.


togolaise and their supporters. As a result, theystated, that party had refused to participate in theelections and had withdrawn its candidates afterthe first stage of the elections. Nor would itparticipate in the work of the Commission (T/-L.131).

The candidates put forward by the anti-unifica-tion Parti togolais du progrès and the Union desChefs et des populations du nord du Togo weredeclared elected, immediately in most cases. Infour areas—the town of Lomé, Lomé subdivision,Palimé and Tsévié—where fewer than a quarter ofthe electors had cast their votes for the candidatesof the Parti togolais du progrès, the six seatsinvolved were declared filled later, after a secondballot proposed by the Administration had beenabandoned since no new lists of candidates wereforthcoming.

In the view of the two anti-unification parties,the elections, after the last-minute withdrawal ofits candidates by the Unité togolaise, had takenplace in absolute calm and freedom. They claimedthat the Consultative Commission had been con-stituted in such a manner as to ensure equitablerepresentation of all the interests concerned andthat the real reason for the unco-operative attitudeof the pro-unification groups was their fear ofbeing shown to represent only a minority. Theycited the results of the elections as proof that themajority opposed unification.

Meanwhile, as had been requested by the UnitedNations General Assembly, the French Govern-ment submitted to the Trusteeship Council areport (T/846 and Corr.1) on the results of theinvestigation into the election methods. Theenquiry was carried out by Paulin Baptiste, Pro-cureur general, who also addressed the TrusteeshipCouncil at its 330th and 331st meetings on 26and 27 February 1951. Mr. Baptiste concluded,from his investigation, that at the tribal stage ofdevelopment of the great majority of the inhabit-ants of the Territory, only a two-stage electoralsystem would enable everyone to express hisopinion; in that respect, it was therefore absolutelydemocratic. He stated that except for the Ewes,who were more advanced than the neighbouringethnic groups, direct universal suffrage was impos-sible at the present time.

Explaining that the whole election campaignseemed to have hinged on the issue of unificationversus the status quo, he observed that the evidenceshowed that the north and south had différentconceptions of unification. Some, chiefly in thesouth, believed that it meant simply the unification

of the Ewe peoples; others understood it to meanthe unification of the two Togolands; while therewere even some who thought the aim was to createa larger Togoland, incorporating parts of the GoldCoast Colony on the west and Dahomey in FrenchWest Africa on the east. It was clear, continuedMr. Baptiste, that the idea of a unification of theEwes only, which would consolidate the mosthighly developed peoples of Togoland and resultin the domination of the south, could not fail toalarm the northern tribes, already justifiably ap-prehensive concerning the economic strangulationwhich would be the effect of unification as far asthey were concerned.

As to the election proceedings and results,Mr. Baptiste concluded, after investigating thevarious allegations made by the petitioners, thatthe elections as they were actually conductedensured, in fact and in law, the equitable repre-sentation of all sections of the population andcomplied with Trusteeship Council resolution250(VII) of 14 July 1950.

The pro-unification groups in Togoland underBritish administration, in particular the TogolandUnion, expressed concern that a larger number ofseats on the Commission had been originally allo-cated to Togoland under French administrationthan to Togoland under British administration andthat two more seats were provided for the formerTerritory. They asked that the two Territories beequally represented on the Commission. Moreover,they objected to the method and conduct of theelections in Togoland under French administra-tion. They decided that they would not participatein the work of the Consultative Commission untilthese elections had been voided and free electionshad been held. Stating that the Commission asconstituted was not representative of the majorityof the population of the two Togolands and wastherefore incapable of serving the purposes forwhich it was intended, they announced that theywould not feel bound by its decisions (see T/-L131).

The Administering Authority of Togoland underBritish administration, explained (T/850) that alarger number of representatives had been allo-cated to Togoland under French administrationdue to the larger population of that Territory andthat it would not have been possible to considerchanging the proportion of the representationwithout delaying the Consultative Commission'sfunctioning. In any case, it added, the complaintwas based on a misconception of the nature of theCommission. As it was purely consultative and


would not take decisions by majority votes, theexact number of representatives was immaterial,the Administering Authority stated.

The Council was informed of the first meetingof the new Consultative Commission, which hadbeen held on 7 and 8 November 1950. Accordingto the minutes of this session (T/845), repre-sentatives holding 29 of the 30 seats allocated tothe population of Togoland under French admin-istration attended, the Comité de l'Unité togolaisehaving refused to nominate the representative towhom it was as a party entitled. Those presentwere the successful elective candidates of the Partitogolais du progrès and the Union des Chefs et despopulations du nord du Togo and a membernominated by the former party. Six of the seven-teen representatives to whom the people of Togo-land under British administration were entitledfailed to attend. Those absent included one of thenine members elected for the Northern Section ofthe Territory, four of the six elected members forthe Southern Section, and the nominee of theAll-Ewe Conference. The nominated representativeof the Togoland Union was present although thatparty had earlier indicated that it would notparticipate.

All the representatives from Togoland underFrench administration spoke against the unifica-tion of the Ewe peoples, or any other form ofunification involving a change in the Frenchadministration of the Territory, at least as long asthe Territory remained under Trusteeship. Sixmembers, however, also stated that any peopleswishing to join Togoland under French adminis-tration would be welcomed.

Of the representatives from Togoland underBritish administration, the eight from the North-ern Section stated that the only form of unificationin which they were interested was unification withthe Northern Territories of the Gold Coast, withwhich they were already being administered as anintegral part. The remaining three representativesspoke in favour of the unification of the whole ofthe two Togolands, one proposing a single admin-istration to be defined by the two AdministeringAuthorities, one insisting on British administra-tion, and one favouring British or, failing that,Anglo-French administration. Shortly after thesession had closed, delegates from the Buem NativeAuthority in Northern Togoland under Britishadministration arrived to apologize for the absenceof the Buem representative. They presented a reso-lution, which, they stated, had been drawn up ata meeting of representatives of the Buem and

Krachi Native Authorities and three independentdivisions, expressing a desire for unification of thetwo Togolands, but only provided the administra-tion was under United Kingdom Trusteeship andin association with the Gold Coast Colony.

Comments on the proceedings in the Commis-sion were included in petitions from the Partitogolais du progrès and the Unité togolaise. Theformer considered that the statements made bythe representatives on the Commission showed thatthe people of both Togolands were unanimous inwishing for the status quo until their "emancipa-tion" (T/Pet.6/209-7/173). On the other hand,the Unité togolaise stated its conviction "that aconsultation in accordance with democratic prin-ciples would show that an absolute majority ofthe Togoland population" favoured unification(T/Pet.6/217-7/177).

At the 338th meeting of the Trusteeship Coun-cil, on 8 March 1951, the representative of theUnited Kingdom, speaking on behalf of both Ad-ministering Authorities, stated that it was clearfrom the statements in the Consultative Commis-sion that the majority of the Togolanders opposedany change in the existing system of administra-tion of the two Trust Territories. Because of thefailure of certain groups to participate, however,the Administering Authorities recognized that ithad not been possible fully to elucidate the diver-gent points of view. He announced that the twoGovernments intended to convene a second ses-sion of the Consultative Commission as soon aspossible, as they attached great importance to thenecessity for arriving at a decision regarding theEwe problem. Anxious that all views should beheard, they were willing to provide the All-EweConference and the Comité de l'Unité togolaisewith a further opportunity to take their place onthe Commission; they had decided to offer eightseats to the latter party on the basis that it wouldprobably have won six in the election (the twoadditional seats being required in order to preservethe original proportions of the Commission) andto make a proportionate increase of five in thenumber of seats allotted to Togoland under Britishadministration.

The two Governments further submitted a jointdraft resolution (T/L.140) for adoption by theTrusteeship Council urging the groups concernedto take advantage of the Administering Author-ities' proposals and to take part in the secondsession of the Commission, and inviting the Ad-ministering Authorities to continue implementingthe plans approved by the Trusteeship Council on


14 July 1950 for ascertaining the wishes of thepeople.

A second draft resolution (T/L.141) was intro-duced by the representatives of Iraq and theUnited States. Its sponsors, stressing the urgencyof finding a solution to the Ewe question, con-sidered it time to move towards a substantivesolution of the problem rather than to concentrateon completing the membership of the ConsultativeCommission. Put to the vote first, this draft resolu-tion was adopted by the Council on 9 March 1951by 9 votes to none with 3 abstentions, as resolution306(VIII). It read:

"The Trusteeship Council,"Having considered General Assembly resolution 441

(V) of 2 December 1950 on the Ewe problem,"Noting the statements made by the Administering

Authorities regarding the electoral methods adopted forelections to the enlarged Consultative Commission forthe Trust Territories of Togoland under French adminis-tration and Togoland under British administration,

"Considering that these methods represented an effortto enable the sections of the population concerned toexpress their opinions,

"Noting that certain groups in the two Trust Terri-tories did not find it possible to take part either incertain stages of the elections or in the proceedings ofthe enlarged Consultative Commission,

"1. Notes that the Administering Authorities proposeto take steps in order to encourage these groups to takepart hereafter in the work of the Commission;

"2. Urges these groups to co-operate with the Admin-istering Authorities in their efforts to seek a solution ofthe problem;

"3. Regrets that a satisfactory solution of the prob-lem has not yet been reached notwithstanding the delaysinvolved;

"4. Draws the attention of the Administering Author-ities to the necessity of seeking a solution with theutmost expedition;

"5. Invites the two Administering Authorities to con-tinue their efforts to solve the problem in the spirit ofresolution 250 (VII) of the Trusteeship Council of14 July 1950;

"6. Recommends, whether or not the composition ofthe enlarged Consultative Commission is completed, thatthe Administering Authorities formulate as soon as pos-sible substantive proposals for a practicable solution ofthe question and inform the Council accordingly notlater than 1 July 1951."

The Council also decided to defer its examin-ation of petitions concerning the unification ques-tion until its ninth session.

On 19 February 1951, the Council had granteda request for a hearing to S. G. Antor, Secretary-General of the Togoland Congress, but he did notarrive in New York until after the Council hadadopted the above resolution. The Council decidednevertheless to hear him without, however, reopen-

ing its consideration of the unification question.He addressed the Council and answered questionsput to him by its members at the 343rd and344th meetings on 15 and 16 March.

The Togoland Congress, he explained, was anorganization representing all the chiefs in Togo-land under British administration, the TogolandUnion, the Togoland Youth Organization and theTogoland National Farmers' Union. It did notwish Togoland under British Administration to beabsorbed in the Gold Coast, but demanded theestablishment of a free, independent and democra-tic State of Togoland and unification of the twoTrust Territories under a single administration.Mr. Antor considered that the Administering Au-thorities were not anxious to solve any of theproblems of unification and felt that they were notparticularly concerned with the wishes and in-terests of the population. As to the enlargedConsultative Commission, he claimed that it wasvirtually non-existent, since the people's repre-sentatives had refused to attend its meetings. Thisdecision, he stated, as far as the Togoland Congresswas concerned, had been influenced by the electionprocedures in both Territories and by the arrestsand imprisonments in Togoland under Frenchadministration.

He informed the Council that the wishes of thepeople were reflected in a resolution adopted bya joint congress of representatives from both Ter-ritories meeting at Agomé-Kpalimé in Togolandunder French administration on 7 January 1951.He alleged that the Administering Authorities hadprevented representatives from the north fromattending by removing bridges over the rivers.

The Congress, in its resolution, asked the UnitedNations to send a commission to investigate andsupervise free and democratic elections or, prefer-ably, a plebiscite to determine the real wishes andinterests of all sections of the people. It furtherrequested: (1) that the wishes of the Ewes in thesouth-eastern part of the Gold Coast Colony, whichthe Trusteeship Council considered outside itscompetence, be taken into consideration in theinterests of maintaining peace; (2) that no partof Togoland be united to any neighbouring colonyor integrated into any other territory before thepeoples concerned had attained self-governmentand could decide for themselves what form anyunion or federation of their Territory with anothershould take; (3) that the United Nations shouldfix the period necessary for preparing the unifiedTerritory for self-government or independence ata maximum of five years. The joint congress asked


that its resolution be considered as having donethe work of the enlarged Consultative Commissionin determining the wishes of the majority of thepopulation, and appealed to the two AdministeringAuthorities to show understanding and redeemtheir promise that Togoland should shortly begranted self-government and independence.

b. CONSIDERATION BY THE TRUSTEESHIPCOUNCIL AT ITS NINTH SESSION

At its ninth session, the Council had before it atotal of 97 petitions79 relating to Ewe and Togo-land unification, including twenty deferred fromits eighth session.

In general terms, the additional petitions eman-ating from pro-unification groups indicated andexplained the continued unwillingness of thesegroups to take part in the work of the ConsultativeCommission, as constituted. Both the Unité togo-laise (T/Pet.6/218-7/178/Add.1) and the Togo-land Union (T/Pet.6/224-7/181) forwarded tothe United Nations, with their endorsement, theresolution adopted by the joint congress at Agomé-Kpalimé (see above). The former stated that theelections in Togoland under French administrationhad been followed by a series of reprisals designedto terrorize the indigenous inhabitants fighting forunification.

Those opposing unification, on the other hand,maintained that the true wishes of the populationshad been expressed through the Consultative Com-mission and that an overwhelming majority wasopposed to any change in the existing administra-tions before the Territories achieved self-govern-ment. The Parti togolais du progres, according topetitions from its President (T/Pet.6/221-7/179& Ad.1 and T/Pet.6/222-7/180), also referred toa growing awareness among Togolanders of thedanger to which the future of Togoland was beingexposed by the All-Ewe Conference and the Unitétogolaise. That party asked the Trusteeship Councilto close the Ewe question and put an end "to astupid business which has been unnecessarilydisturbing our peaceful country for the past fiveyears".

In a joint memorandum (T/931 & Add.1), thetwo Administering Authorities reported to theCouncil on the second session of the ConsultativeCommission and the conclusions they had reachedfrom its proceedings and from further considera-tion of the unification problem. At the same time,they announced their new proposals for solvingthe problem.

The continued absence from the ConsultativeCommission of the principal groups favouringunification was confirmed by the two Govern-ments. They stated that in Togoland under Frenchadministration the President of the Comité del'Unité togolaise had formally declined their offerof eight additional seats; and that on the Britishside, in spite of efforts made to persuade the Ewerepresentatives to abandon their boycott of theCommission, the representative of the All-EweConference and the representatives of Akpini,Avatime, Atando and the Togoland Union hadabsented themselves from the second session,which opened at Ho, in Togoland under Britishadministration, on 15 May 1951. Representativesattending numbered 29 out of 30 on the Frenchside and thirteen out of eighteen on the Britishside.

The Administering Authorities expressed regretat the failure of these groups to take advantage ofthe opportunity to express their views in the Com-mission, adding that this attitude did nothingeither to facilitate the task of the AdministeringAuthorities or to permit the realization of thehopes entertained both by them and by the Trus-teeship Council. They pointed out, however, thatthey had taken account of the views of thesegroups, as expressed in petitions and other repre-sentations, and were satisfied that the ConsultativeCommission had served its purpose of elucidatingthe views of the majority of the peoples of thetwo Trust Territories. Therefore, they envisagedno continuing role for the Commission in thefuture.

Analysing the various unification proposals andtheir reasons for rejecting them, the two Admin-istering Authorities maintained: (1) that unifica-tion of the Ewe people was desired only by aminority of the population of the area whichwould be comprised in such a unification and,moreover, enjoyed no support from the people ofthe remaining areas of the two Trust Territories;(2) that the immediate unification of the twoTogolands was also not favoured by a majority;and (3) that the possibility of a solution by uni-fication under a joint Anglo-French authoritywould not satisfy the Ewe people.

They had therefore concluded that no solutioninvolving an alteration of boundaries or of poli-tical allegiance could currently be proposed whichwould command the general assent of the peoples

79

For list of these petitions, see pp. 791-98.


of the two Territories or even the agreement ofa majority. They were equally satisfied that nochange of this nature could be undertaken whichdid not raise a fresh set of problems, whetherpolitical, economic or fiscal, in place of the existingones. They also opposed the use of a plebiscite asa means of determining the wishes of the peoplewith respect to such a complicated problem, sincethey considered it impossible to place the matterbefore the voters in a way that would be beyondmisunderstanding and confusion and that wouldavoid subsequent charges of inadequate presenta-tion or of misrepresentation.

The Administering Authorities stated that anyproposals for solving the problem must fully takeinto account the known wishes of the peoples andcommand general acceptance or, at any rate, ac-ceptance by a large majority, and that any changein the political organization in the Territories mustbe practicable on economic and fiscal as well as onpolitical grounds.

In their opinion, much had been accomplishedsince 1947 to alleviate the difficulties caused by thefrontier between the two Togolands. As a resultof extensive concessions, they stated, there wasnow complete freedom of movement of personsand only the minimum restraint on other traffic:no significant complaints of difficulties caused bythe frontier had been brought to the notice of thetwo Governments in 1950. Further progress in thefield of economic, cultural and fiscal measures waspossible, and the recommendations of the Con-sultative Commission in this respect had alreadybeen studied by the two Governments and anumber of decisions had been put into effect. Thetwo Governments recognized, however, that suchpractical steps could not yet be regarded as com-pletely satisfying the aspirations of the peoplesconcerned; they felt, nevertheless, that there wasscope for closer relations between the peoples ofthe two Territories within the framework of exist-ing boundaries. The Consultative Commission hadpointed to the desirability of harmonizing thepolicy of development in the two Trust Territoriesas an essential corollary to their advancementtowards self-government. This was noted withinterest by the Administering Authorities, whichpointed out that in Togoland, as in West Africaas a whole, developments and changes were goingon at a rapid pace in all fields, and that on bothsides of the Togoland frontier important develop-ments were in progress in regional and local gov-ernment and in the manner of indigenous partici-pation in the administration of public affairs.

The Administering Authorities stated that theyhad decided to create a joint body of representa-tives of the two Trust Territories so as to associatethe people more directly with their efforts tosecure harmony in these developments. Althoughany such new body could have no executive orlegislative power extending over both Trust Terri-tories, the Administering Authorities pointed outthat it would nevertheless be a meeting placewhere views on the development of the two Terri-tories could be exchanged and co-ordinated, andthe measures of development in every field harm-onized and stimulated. This joint body could dis-cuss and consult with the senior administrativeand technical officers from each side, consider andadvise the two Administering Authorities jointlyon the planning and implementation of economicand social development programmes and measuresto reduce frontier difficulties, and on the projectsof common interest on which it was thought fundsshould be expended. The Administering Author-ities expressed the belief that, in this way, thelegitimate aspirations of the peoples of the TrustTerritories would be assured and any prejudice totheir interests avoided during the period of theiradvance towards self-government.

The Trusteeship Council granted hearings toS. G. Antor, representative of the TogolandCongress, and to Pedro Olympio, representative ofthe Parti togolais du progrès. Both addressed theCouncil at its 380th meeting on 24 July 1951.

Mr. Antor, commenting on the proposal of theAdministering Authorities to set up a new jointbody, stated that this decision was not acceptableas a solution of the problem to the Joint TogolandCongress, to the Comité de l'Unité togolaise, tothe Togoland Union, to the Togoland NationalFarmers' Union, to the Togoland Youth Organiza-tion, to the Togoland Ex-servicemen's Union, norto the peoples at large. He stated further that theJoint Togoland Congress requested an immediaterecommendation to the General Assembly that thepresent separate Trusteeship Agreements for theTogolands be revoked and a single agreementsubmitted providing for direct United Nationssupervision for five years, followed by the grantof complete self-government or independence.

Mr. Olympio expressed his conviction that theParti togolais du progrès would willingly acceptthe proposed new joint body. He suggested, how-ever, that, since this organ would not differ fromthe Standing Consultative Commission except inname, the Commission should be allowed to con-tinue to function for two years, in order to avoid


the troubles which new elections might cause andparticularly to allow the other parties time toreflect on their attitude and to take part in thenew organ.

The representatives of France and the UnitedKingdom introduced a draft resolution (T/L.212)proposing that the Council approve the jointmemorandum (T/931) of the Administering Au-thorities and welcome the establishment of a JointCouncil with power to deal with economic, social,educational and cultural matters of interest to thetwo Trust Territories. The joint draft resolutionwould also urge the various elements of the popu-lation to give their full support to this body.

The representatives of the Dominican Republic,Thailand and the United States were agreed thata clear cut solution to the unification problemwhich would reconcile the conflicting points ofview could not yet be reached. Nevertheless, theyconsidered the powers proposed by the Adminis-tering Authorities for the Joint Council too limit-ed. They stressed that it should be empowered tofunction in the political field and should be fullyrepresentative of the people of the two Togolands.They therefore jointly introduced an amendeddraft resolution (T/L.212) to this effect. Thethree sponsors of the amended draft resolutionaccepted further amendments orally proposed byArgentina (1) to refer to the Trusteeship Coun-cil's decision of its seventh session, and (2) toprovide that the Joint Council's advisory functionsshould include, in particular, the Ewe problem.

As thus altered, the amended draft resolution,which retained only the first paragraph of theAnglo-French draft, was adopted by the Council atits 380th meeting on 24 July by a roll-call vote of10 to none, with 2 abstentions, as follows:

In favour: Argentina, Australia, Belgium, China,Dominican Republic, France, New Zealand, Thailand,United Kingdom, United States.

Abstaining: Iraq, USSR.

It read:''The Trusteeship Council,"Recalling its resolution 306 (VIII) of 9 March 1951

on the Ewe problem,

"Having considered in this connexion various petitionssubmitted by different groups, parties and individualsto the Trusteeship Council, which are listed in theannex to this resolution,

"1. Notes with interest the joint Anglo-French mem-orandum regarding the Ewe and allied petitions sub-mitted to the Trusteeship Council by the two Adminis-tering Authorities in response to resolution 306 (VIII);

"2. Concurs with the view of the two AdministeringAuthorities expressed in their joint memorandum that

there would seem to be no reason for continuing theexistence of the Consultative Commission;

"3. Approves the proposal of the Administering Au-thorities to establish a joint council composed of repre-sentatives from Togoland under French administrationand Togoland under British administration to advisethe two Administering Authorities on matters of com-mon concern to the people of the two Trust Territoriesincluding in particular the Ewe problem;

"4. Recommends that the two Administering Author-ities proceed with their plans immediately to establishsuch a joint council in order that it may have functionedfor a sufficient period of time for the United NationsVisiting Mission to the Trust Territories in West Africain 1952 to form an evaluation of its accomplishments;

"5. Recommends that the two Administering Author-ities ensure that the scope of responsibilities of theproposed joint council be sufficiently broad to enable itto exercise its functions with respect to all questions ofcommon concern to the people of the two Trust Terri-tories, including questions of political, economic, social,educational and cultural development;

"6. Recommends that the method of determining thecomposition and selecting the members of the jointcouncil be such as to ensure, if possible, the participationof the major groups in the two Trust Territories;

"7. Urges all elements of the population of the twoTrust Territories to co-operate in the establishment andoperation of the joint council in order that the jointcouncil's decisions may fully reflect the views of allconcerned;

"8. Requests the two Administering Authorities toreport as soon as possible on the action taken pursuantto the present resolution;

"9. Reaffirms its resolution 250 (VII) of 14 July1950 in which the Council recommended to the Admin-istering Authorities concerned to take all necessary andappropriate measures in order to ensure that, until adefinitive settlement was reached, the common traits andtraditions of the Ewe people in the two Trust Territoriesbe preserved."

The adoption of this resolution was opposed bythe representatives of Iraq and the USSR, on theground that it disregarded the desire expressed inmany petitions from the peoples of the two Togo-lands for the unification of the Ewe tribes and theestablishment of an independent Togoland State.The representative of Iraq pointed out that theEwe question was still far from an effective solu-tion and was threatening to lead to violence. Herecalled that that was why the Visiting Mission toTrust Territories in West Africa in 1949 had con-cluded that a solution should be sought withurgency.80 He blamed both the Trusteeship Coun-cil, which he stated had so far done nothing butsanction the decisions of the Administering Au-thorities, as well as the Administering Authoritiesthemselves, for having failed to find a solution.

80 See Y.U.N., 1950, p. 750.


c. CONSIDERATION BY THE GENERALASSEMBLY AT ITS SIXTH SESSION

The Ewe and Togoland unification questionwas considered by the General Assembly at itssixth session at the 226th, 228th to 230th, 233rdand 234th meetings of the Fourth Committee on13, 15, 17, 18 and 21 December 1951 and on2 January 1952, respectively, and at the 361stplenary meeting on 18 January 1952.

As had been requested by the General Assemblyin 1950, the Trusteeship Council included in itsannual report to the Assembly (A/1856) aspecial chapter on the Ewe problem.

This report, together with a joint memorandum(A/C.4/198) submitted by France and the UnitedKingdom setting forth the arrangements made forthe establishment of the Joint Council for Togo-land Affairs (see below), were examined by theFourth Committee.

At the Committee's request, a summary ofrelevant petitions and communications receivedsince the date of the Trusteeship Council's reportwas prepared by the Secretariat (A/C.4/195 andAdd.1 & 2). The petitions from the pro-unifica-tion groups indicated dissatisfaction with theaction taken by the Trusteeship Council, whichthey felt had brought them no nearer to theirgoal. They asked that the unification question betransferred to the General Assembly. The Partitogolais du progrès also protested against theaction of the Trusteeship Council for its failure to"close the Ewe case" on the ground that nolegitimate case for unification existed. Both sidescomplained of increasing tension and acts ofviolence in Togoland under French administrationas a direct or indirect result of the unificationmovement.

At its 202nd meeting on 15 November 1951,the Fourth Committee decided to grant requestsby the All-Ewe Conference, the Joint TogolandCongress and the Comité de l'Unité togolaise forpermission to make statements before the Com-mittee. At its 230th meeting on 18 December, theCommittee also granted similar requests by theParti togolais du progrès and the Union des Chefset des populations du nord du Togo. These repre-sentatives addressed the Committee and answeredquestions put to them by its members at the 226th,228th, 229th, 233rd and 234th meetings. Repre-sentatives of the two Administering Authoritiescommented on the petitioners' observations at the229th and 233rd meetings, after which the Com-mittee resumed its general discussion of the unifi-cation problem.

( 1 ) Joint Memorandum of the AdministeringAuthorities

In this memorandum (A/C.4/198), dated 10December 1951, France and the United Kingdomoutlined the arrangements they had made to set upthe Joint Council for Togoland Affairs. It was toconsist of fifteen members from Togoland underFrench administration, elected by each of thedistrict councils and the local Representative As-sembly, and six members from Togoland underBritish administration, three of whom would beelected by the Southern Togoland Council torepresent the Southern Section of the Territoryand three by the Native Authorities in the northto represent the Northern Section. The Councilwas "to discuss and advise the Administering Au-thorities on the co-ordination of developmentplans in frontier areas, the amelioration of condi-tions caused by the existence of the frontier, andother matters of common concern to the peopleof the two Trust Territories". Decisions of theJoint Council would require approval by threequarters of the total membership, i.e., at leastsixteen votes.

In introducing the joint memorandum at the226th meeting of the Fourth Committee on 13December 1951, the representative of the UnitedKingdom observed81 that, of the six members forTogoland under British administration, therewould probably be at least two from the SouthernSection representing groups advocating some formof unification; he considered that to be a fairreflection of the proportion of the population sup-porting unification. Stating that the proposed JointCouncil had broader and more positive functionsthan the Standing Consultative Commission, therepresentative of the United Kingdom also stressedthe importance of the Administering Authorities'intention to seek local legislative approval forallocating funds to the Joint Council for expendi-ture on development projects concerning bothTerritories.

(2) Views of Representatives of the All-EweConference, Joint Togoland Congress and

Comité de l'Unité togolaise81

Sylvanus Olympio, speaking for the All-EweConference, stated (A/C.4/L.159) that he hadcome to the Fourth Committee to denounce theFrench method of handling the Ewe question, but

81

The verbatin statement of the representative of theUnited Kingdom was reproduced, at the Fourth Com-mittee's request, as document A/C.4/L.158.

82 The verbatim statements of these representativeswere reproduced, at the Committee's request, as FourthCommittee documents A/C.4/L.159-161.


affirmed that the Ewes wished to remain friendsof France. From the time the first United NationsVisiting Mission had reported that the Ewe prob-lem was a nationalist and urgent one, he observed,an unremitting campaign had been waged to provethat the Visiting Mission had been mistaken andthat the Ewe movement did not exist. He claimedthat the situation in Togoland under French Ad-ministration had grown progressively worse andalleged that every possible means had been em-ployed to crush the movement—prominent sup-porters had been subjected to persecution, theright to freedom of speech and freedom ofassembly had been curtailed or withdrawn, col-lection of funds had been forbidden save with theauthorization of the Governor, progressive personshad been prevented from entering the Territory,there was a ban on newspapers from the GoldCoast, and the police had been strongly reinforced.He alleged that the Administration had resortedto trumped-up charges in order to arrest supportersof the unification movement. For example, he con-tinued, the chief of the Palimé branch of theComité de l'Unité togolaise had been arrested forhaving caned his nephew for refusing to pay thehead-tax, an incident which had taken place someyears earlier. In the Anécho district, he adduced, achief who had refused to leave his party had beenarrested on the charge of having stolen his servant'sgoat. Both, Mr. Olympio stated, had eventuallybeen acquitted. Mr. Olympio referred to the inci-dent of 5 July 1951, when police entered Mr. deSouza's house,83 and to later disturbances, inAugust, over the succession of chieftainships in thevillages of Agbétiko and Vogan. At Agbétiko, oneman was fatally wounded and at Vogan, seven ormore persons were reported killed and fourteenwounded when militiamen opened fire. (Thesedisturbances were attributed by three chiefs (T/-Pet.7/265 & Add.1) and the Unité togolaise(T/Pet.7/267 & Add.1) to Administration inter-ference in disputes which could have been peace-fully settled by the local inhabitants, and by theParti togolais du progrès (T/Pet.7/269 & Add.1& T/Pet.7/279) and the Administering Authorityto the instigation of riots by the Unité togolaise.

Charging that supporters of the unificationmovement could not feel secure in their employ-ment, Mr. Olympio alleged that a young doctorfrom whom he had received a telegram of encour-agement when he had previously appeared beforethe Trusteeship Council in 1950 had been sent toFrench Equatorial Africa by order of the Governor,the official reason given for his exile being that

he was anti-French and had sent telegrams toMr. Olympio at Lake Success.

Mr. Olympio stated that for five years theunification party had held nearly every seat in theRepresentative Assembly of Togoland underFrench administration and had been elected as theAfrican members for Togoland in the FrenchNational Assembly. Citing the case of Martin Aku,who had been defeated in the elections to theNational Assembly in June 1951,84 Mr. Olympioalleged that the Administering Authority was nowsecuring the defeat of unification candidatesthrough fraudulent elections in which chiefs sub-servient to the Administration were assigned apredominant part. He pointed out that when theRepresentative Assembly had asked to be consultedon the procedure for elections to the enlargedConsultative Commission, the Governor had saidthat the Assembly was a purely French institu-tion and was not concerned with elections to aninternational body such as the Consultative Com-mission. Referring to the arrangements made forestablishing the proposed Joint Council (seeabove), he found it surprising that the Repre-sentative Assembly should be entitled to sendmembers to sit on an international organ. Heconsidered that this explained the haste shown bythe Administering Authority in setting 9 Decem-ber 1951 as the date for new elections to thatAssembly and in renewing the district councils,notwithstanding the fact that legislation to changethe electoral system was before the French Parlia-ment.

As in the past, Mr. Olympio appealed to theUnited Nations for assistance in unifying the Ewepeoples. For Togoland, he said, self-governmentand unification went hand in hand. He felt thatself-government in turn depended on the estab-lishment of an effective legislative body representa-tive of both Togolands. The people of Togolandhad no wish to be integrated into the FrenchUnion or the Gold Coast, he maintained. Theypreferred to decide for themselves, once they hadbecome independent, the kind of relationship, byfederation or otherwise, they would have withother West African countries. As to the Ewes inthe Gold Coast Colony, he claimed that they wouldrather live in Togoland, although, he stated, theynew enjoyed more freedom than the Ewes inTogoland. In any case, he judged that if Togolandgained its independence, it would be easy to con-

83 See pp. 748-49.

84 See pp. 743-44.


suit the Gold Coast concerning the type of associa-tion or federation to be set up.

The allegations advanced by Mr. Olympioregarding violations of freedoms and the holdingof fraudulent elections were supported by MartinAku, the representative of the Comité de l'Unitétogolaise (A/C.4/L.161). He commented on thetwo aspects of unification—that of the unificationof all the Ewes and that of the unification of thetwo Togolands. The latter, he stated, would givethe Ewes only partial satisfaction because of theEwes living in the Gold Coast Colony. He there-fore concluded that the only just solution lay inthe abolition of the colonial regime. He also con-sidered that the position of Togoland under Frenchadministration within the French Union should beclarified by the United Nations as a prerequisiteto the satisfaction of the people's claims for eman-cipation.

S. G. Antor spoke (A/C.4/L.160) on behalfof the Joint Togoland Congress, which, he stated,represented the traditional leaders and the variouspolitical, social and farmers organizations of thetwo Togolands, brought together for the commonpurpose of resisting the partition of the TrustTerritories between the French Union and theGold Coast Colony and of seeking unification andautonomy. He stated that for many years thepeople of Togoland had sent petitions, resolutionsand cablegrams to the United Nations. They hadasked again and again for a United Nations com-mission to help solve their problems and to help todraw up a constitution for Togoland. Their peti-tions, he complained, had been referred to theTrusteeship Council, which had frequently merelydrawn the petitioners' attention to its recom-mendations adopted in connexion with the annualreport on the Territory or to the observations ofthe Administering Authority. He stated that suchresolutions had impaired the prestige of the UnitedNations among the peoples of the Trust Terri-tories, who had seen the Administering Authoritiesgain a stranglehold on the Trusteeship Councilduring the past few years. That was why, he said,they had decided to bring their case before theGeneral Assembly. Their demand now was onlyfor self-government or independence and the rightto solve the problem of unification according tothe will of the people.

Mr. Antor stated that all loyal Togolanders hadprotested at what was happening on the Frenchside of the frontier. He added that he had beenarbitrarily refused admission into that Territorywhen he had gone to visit members of the Comité

de l'Unité togolaise after his appearance before theninth session of the Trusteeship Council. Heinformed the Fourth Committee that there hadbeen no cases of intimidation and persecution inTogoland under British administration such asthose described by Mr. Olympio with respect toTogoland under French administration.

With respect to Togoland under British admin-istration, however, he maintained that, although itwas referred to in the United Nations as a separateTerritory, it had been completely integrated intothe Gold Coast Colony. He claimed that this hadbeen done for the purpose of exploiting the TrustTerritory's resources for the profit of the CrownColony, and gave illustrations to support his argu-ment. He referred in particular to the Gold CoastCocoa Marketing Board,85 through which all cocoaproduced in Togoland under British administrationhad to be sold, and stated that the Board had mademillions of pounds profit, while Togoland cocoafarmers had received virtually nothing. Repeatedefforts of the Togoland farmers to set up a separatecocoa board had proved unsuccessful. Following adecision reached by the representatives of thecocoa-producing areas of both Togolands, Mr.Antor stated, the Togoland Congress had, in Sep-tember 1951, appointed a delegation to submit tothe Governor of the Gold Coast draft legislationestablishing a separate Togoland produce market-ing board. Their case was based on the fact thatthe existing cocoa marketing legislation had beenapplied to Togoland, not by the AdministeringAuthority of the Trust Territory, but by a colonialgovernment (the Gold Coast Government) andthat the Administering Authority could not dele-gate its authority to the Legislative Assembly of acolony. However, he continued, the Governorreplied on 31 October (A/C.4/L.160) that it wasnot the policy of the Gold Coast Government toset up a separate produce marketing organizationfor Togoland. Mr. Antor contended that Togolandmembers on the various Gold Coast bodies werein effect appointed by the Administration or elect-ed by organs created and controlled by the Admin-istration and that Togolanders were not consulted.He considered that improvements in political, eco-nomic and social conditions would be possible onlywhen both Togolands possessed separate politicaland economic organs, including a real legislativebody democratically elected.

As to the proposed Joint Council for TogolandAffairs, he claimed to have been told by the French

85

See pp. 734-36.


consul at Accra that both Administering Authori-ties were unwilling to give it effective powers. Healleged that the British Administration had there-fore agreed that the number of representatives onthe French side should be larger, in the certaintythat they would be Administration supporters whowould outvote the members from the British side.

All three representatives of the petitioners ad-duced that the Joint Council would be incapableof helping to solve the unification problem.Mr. Antor suggested that the situation would beentirely different in the case of a body with realauthority elected by universal suffrage underUnited Nations supervision, and he appealed tothe United Nations to send a commission to super-vise elections to a join council with power tolegislate for the two Togolands.

The proposals of the Administering Authoritiesfor establishing the Joint Council, the three repre-sentatives stated, would make it another Consulta-tive Commission under a different name, andrepresented a further attempt by the Administer-ing Authorities to delay a just solution. Theypointed out that the Consultative Commission,which they stated had achieved no definite results,had had similar terms of reference except that ithad not been able to deal with political questions.Although it had made recommendations to alle-viate frontier difficulties, these difficulties had notbeen resolved.

If the two parts of Togoland were united, theystated, innumerable frontier problems would disap-pear and the people could benefit from the resour-ces of Togoland as a whole. With respect to theresources of the two Territories, Mr. Olympio gaveillustrations to support the contention that Togo-land would be economically viable if united. Hestated that Togoland under British administrationproduced cocoa almost exclusively but no food-stuffs, while Togoland under French administra-tion produced large quantities of foodstuffs buthad practically no industrial crops. Similarly, theformer Territory produced large quantities of salt,while the latter imported the salt it needed fromPortugal and Dakar.

( 3 ) Observations of the AdministeringAuthorities

The representative of France, replying (A/C.4/-L.166)86 to the allegations of the petitioners con-cerning Togoland under French administration,assured the Fourth Committee that human rightsand fundamental freedoms were scrupulously ob-served in the Territory. He stated that the variousincidents which had been referred to had been

due to disturbances incited by the Comité del'Unité togolaise for the purpose of blaming poli-tical opponents and the Administering Authorityand of denouncing the latter's security measures asoppression. He suggested that the successive elec-toral defeats of the Unité togolaise, which, hestated, had had overwhelming power after the1946 legislative elections, might be due to thegrowing anxiety of the population in the face ofdangerous intrigues and the party's abuse of power.As to the allegation that freedom of the Presshad been violated, he stated that the Commis-sioner of the Republic, as authorized by law,had rightfully prohibited the importation of apublication which was carrying on a campaignof insult, libel and false reports. He also refutedthe charge that freedom of information wasdenied, starting that M. Antor had been re-fused entry to the Territory because he was lead-ing a delegation of eighteen persons to take partin a demonstration at Lomé, but that Mr. Antorwas later informed that he was free to come toLomé in a private capacity.

Turning to the question of the status of theTerritory within the French Union, the represent-ative of France affirmed that this in no way ob-literated the Territory's status under the Inter-national Trusteeship System or impeded its evo-lution under that System, nor did he see any dis-advantages in the Territory's representation in theFrench Parliament. In the Territory's evolution,however, he cautioned that political progress mustbe accompanied by economic, financial and cul-tural progress.

Replying to the assertion that the chiefs wereonly agents of the Administration, he stated thattheir functions and the method of their appoint-ment were strictly in accordance with traditionand that they received no salary.

With respect to the Representative Assembly,he stated that it was impossible to wait for theFrench Parliament to adopt the pending electoralreforms before holding the elections of 9 Decem-ber 1951. He explained that the terms of officeof the representatives expired on 8 Decemberand, moreover, that elections were politically nec-essary since the members elected in 1946 nolonger reflected the views of the majority.

The representative of France urged the FourthCommittee to approve the Anglo-French memo-randum concerning the organization and function-ing of the proposed Joint Council for Togoland

86 This document, reproducing the verbatim statementof the representative of France, was issued at the requestof the Fourth Committee.


Affairs. He emphasized that the distribution ofseats would be exactly proportional to the popu-lation figures of the two parts of Togoland. Heexplained that the Administering Authorities hadrefused the request of the Unité togolaise for theelection of members by direct suffrage becausethey had not wished to risk any opposition be-tween the Council and the elective bodies alreadyin existence, since the Council's effectiveness de-pended on the co-operation of the regional andlocal representative organs. The electoral systemproposed, he maintained, would afford all sectionsof the population every guarantee of equitablerepresentation and ensure the representation ofminorities which would have been precluded bythe law of majority vote. It would in effect en-sure unification supporters a larger number ofseats on the Joint Council than they could other-wise have expected, the French representative ad-duced.

Although the Administering Authorities hadwanted the Council's terms of reference to bevery broad, he stated, they had found it impossibleto broaden them without violating the legal pro-visions in force in the two Territories and pro-voking differences with existing assemblies. Therepresentative of France pointed out, however,that, while the proposed Council would not havelegislative powers, it would be able to act in entirefreedom and to assemble all the data it required.As far as the Administering Authorities were con-cerned, the Joint Council represented a practicaland sincere means of complying with the recom-mendations of the Trusteeship Council and theGeneral Assembly.

The representative of the United Kingdom, re-plying to the criticisms of the proposed functionsof the Joint Council with respect to the frontierarea, stated that it was precisely the existence ofthe frontier that had created the problem, whichhad originally been simply an economic question.He also referred to two fundamental differencesbetween the Consultative Commission and theJoint Council: (1) the latter could deal withpolitical matters of common concern, and (2) itwould be responsible for administering the fundswhich might be placed at its disposal.

He reiterated the Administering Authoritiesconviction that no unification plan which mightbe put forward by the Ewes would be likely tomeet with the approval of the majority of theindigenous population.

On the question of the Cocoa Board, raised byMr. Antor, the representative of the United King-

dom considered that a small independent boardfor Togoland handling comparatively insignificantquantities of cocoa could not meet with the sameacceptance on the world market as the existingGold Coast Cocoa Marketing Board, which wasin a sound and stable position by reason of itslarge reserves. Whatever advantages a separateboard might bring to a few individuals, he con-tended, it could not serve the interests of Togo-land farmers as well as the existing Board.

Referring to Mr. Antor's remarks concerningthe electoral system in Togoland under Britishadministration, he contended that the principleson which that system was based seemed to ensurethat the views of the majority would prevail. Heremarked that Mr. Antor had tried to convey theimpression that he was acting for all the principalsections of the populations of both Trust Terri-tories but that the documents and testimonials hehad used to support his statements had come fromonly one small area around Atando, in the South-ern Section of Togoland under British administra-tion, representing a twelfth of the whole Terri-tory at the most.

(4) Views of Representatives of the Partitogolais du progrès and the Union des Chefs

et des populations du nord du Togo87

Robert Ajavon and Nicholas Grunitzky, repre-sentatives of the Parti togolais du progrès, whichclaimed about 40,000 members, explained the po-sition of their party to the Fourth Committee(A/C.4/L.177 & 179). The party opposed theunification of the Ewes if such unification tookthe form of creating art Ewe State, which woulddeprive the northern part of Togoland underFrench administration of all access to the sea. Itfavoured Ewe unification, however, if it were car-ried out as part of a reconstituted Togoland. Mr.Grunitzky explained that a national consciousnesshad gradually developed in Togoland under Frenchadministration and that it would be regrettableto allow the claims of one tribe, the Ewes, whowere numerically a minority, to bring about thedisintegration of the territorial entity of Togoland.

In the view of the Parti togolais du progrès,the immediate independence of Togoland was im-possible because of the lack of trained indigenouspersonnel. Furthermore, political independence de-pended on economic independence, and since To-goland's resources were limited, the party con-sidered it logical that the Territory under French

87 The verbatim statements of these representatives

were reproduced, at the Committee's request, as FourthCommittee documents A/C.4/L.177-179.


administration should attain its independence asa member of the French Union. In order to reachthis goal rapidly, the party's policy was thereforeto co-operate with the Administering Authorityto ensure the Territory's political, economic, socialand cultural advancement. Mr. Ajavon suggestedthat the establishment of the proposed Joint Coun-cil might be tried but if it failed the principalparties of both Trust Territories should consultwith a view to reaching a solution of the Togo-land problem.

Mama Fousseni, on behalf of the Union desChefs et des populations du nord du Togo, stated(A/C.4/L.178) that the peoples of northern To-goland under French administration had originallymisunderstood the nature of the Ewe question.When they recognized that the Ewe movementhad adopted a separatist policy, he explained, theyhad left the Unité togolaise and associated them-selves with the Parti togolais du progrès, sincethe latter recognized no distinction between thevarious ethnic groups constituting Togoland.While the chiefs and peoples of the north ferv-ently desired the unification of the two Trust Ter-ritories, he stated, it was difficult to see how thiscould be accomplished since they were being ad-ministered by different Administering Authori-ties. They thought the wisest course would be toaccelerate the advancement of the peoples of bothTerritories so they might attain self-governmentor independence as soon as possible. At that stage,the union of the two parts of Togoland, in theform of a federation, might be contemplated.

(5) Consideration by the Fourth Committee

The Fourth Committee had before it a jointdraft resolution (A/C.4/L.163) by France andthe United Kingdom. According to this draft, theGeneral Assembly would urge the two Adminis-tering Authorities and the peoples concerned todo all in their power to promote a settlement ofthe Ewe problem through the Joint Council forTogoland Affairs, and would recommend that theTrusteeship Council continue to pay special at-tention to all aspects of the problem and, in par-ticular, consider instructing its next Visiting Mis-sion to Trust Territories in West Africa to reportin detail on the working of the Joint Council. Thedraft resolution also proposed, inter alia, that theAssembly note that the Trusteeship Council's re-port indicated serious efforts on the part of theCouncil to find a solution to the Ewe problem.

Amendments to this draft resolution were putforward jointly by Brazil, Ecuador, Egypt, India,

Indonesia, Iraq, Pakistan, the Philippines andUruguay (A/C.4/L.168).

They proposed a revised operative text, thedeletion of the reference to the "serious efforts"made by the Council, the addition of two para-graphs in the preamble (see below, paragraphs4 and 5 of the resolution as finally adopted), andsuggested that the draft resolution refer to theTogoland unification problem as well as to theEwe problem. In the operative part, the amend-ments proposed, inter alia, that the Assembly:(1) express concern at the tense atmospherewhich, according to the All-Ewe Conference, theJoint Togoland Congress and the Comité del'Unité togolaise, appeared to exist in the Terri-tories; (2) recommend that the functions andpowers of the Joint Council be extended and thatthe Administering Authorities consult with therepresentatives of the people before constitutingthe Council, with a view to the election of itsmembers by direct representation and, as nearlyas possible, by universal adult suffrage; and (3)recommend that the Trusteeship Council devotemore attention to the unification problem than inthe past and send a mission to study the problemon the spot and make specific recommendationsto the Council.

The representative of the Philippines statedthat the Ewe problem was the most critical thathad yet emerged from the operation of the In-ternational Trusteeship System. He considered thatthe United Nations should do all in its power topromote the unification of the Ewes. Serious al-legations had been made by the leaders of theunification movement, particularly against the Ad-ministering Authority of Togoland under Frenchadministration, and equally violent accusations hadbeen made by the Administering Authoritiesagainst the unification movement, the represent-ative of the Philippines observed. He noted, how-ever, that it was from the unification movementthat the plea for an independent commission ofinvestigation arose. He charged that the Admin-istering Authorities had repeatedly failed to con-sult the people concerned before setting up theconsultative commissions and the Joint Council.The situation demanded the most thorough andimpartial investigation on the spot, he stated. Hedid not believe that the problem could be solvedeither in the Fourth Committee or the TrusteeshipCouncil; the latter body, he felt, was being re-duced to a state of impotence. The aim of theTrusteeship System, he pointed out, was eventual


self-government or independence, and that factshould always be kept in mind.

The representative of Indonesia, speaking insupport of the amendments, also stressed the urg-ency of the unification problem and stated thatthe Fourth Committee should take effective actiontoward a final solution. He felt that the Admin-istering Authorities had failed to carry out themost important points of the Trusteeship Coun-cil's resolution 345(IX)—with respect to theterms of reference of the proposed Joint Counciland that Council's composition. He consideredthat the Joint Council's competence to deal with"matters of common concern" to the two TrustTerritories was not sufficient assurance that itcould consider the political aspects of the unifi-cation problem. Moreover, he expressed his con-viction that the proposals in the joint amend-ments for elections to the Joint Council wouldbe more likely to secure the co-operation of theEwe leaders than those embodied in the Anglo-French memorandum (A/C.4/198).

Both the joint draft resolution and the amend-ments were thought unsatisfactory by the repre-sentatives of Guatemala and the USSR. Theserepresentatives held that the demands of theEwes for unification and independence should besatisfied.

The representative of Belgium considered thatthe amendments to the joint Anglo-French draftresolution tended to confuse the responsibilitiesof the Administering Authorities and those of theTrusteeship Council and the Assembly. He arguedthat it was for the Administering Authoritiesalone to find a settlement and stated that if therehad been an easy solution, they would have foundit long ago. The Trusteeship Council, he main-tained, should not assume responsibility for a so-lution, but should confine itself to examining theaction taken by the Administering Authorities. Heannounced that he would be unable to supportthe proposed amendments unless they were ac-ceptable to France and the United Kingdom.

The representatives of France and the UnitedKingdom objected to certain points in the amend-ment. The representative of France objected, inparticular, to the reference in the amendments tostatements concerning the tense atmosphere whichappeared to exist in the Territories and the omis-sion of any reference to the statements in a differ-ent sense made by the other representativesor to the replies of the Administering Authorities.He added that he considered it superfluous toemphasize the importance of the opinion of the

Administering Authorities, who bore the directresponsibility for the solution of the problem. Healso objected to the amendment relating to themethod of electing members to the Joint Council,stating that he had already pointed out the dan-gers inherent in an electoral procedure whichmight result in the election of representatives whowould meet with opposition from those withwhom they would have to work in harmony ifgood results were to be attained.

The representatives of France and the UnitedKingdom accordingly proposed changes (A/C.4/-L.182/Rev.1) to the joint amendments: (1) toadd references to the statements made by theParti togolais du progrès and the Union des Chefset des populations du nord du Togo andto their own comments on behalf of the two Ad-ministering Authorities; and (2) to provide forconsultations with a view to devising satisfactoryprocedures for the election of representatives tothe Joint Council, without specifying, however,that these should be by direct election or universalsuffrage. (See below, paragraphs 2, 3 and 5 ofthe substantive part of the resolution as finallyadopted.)

These changes were accepted by the sponsorsof the original joint amendments, but the repre-sentative of Ecuador expressed reservations con-cerning the second change, which he consideredvague. He doubted that results would be achievedby proposing methods of election to the variousopposing parties. The representative of Brazil, onthe other hand, stated that his delegation, in ac-cepting the revised wording, was not abandoningthe principle of universal adult suffrage since itconsidered that that was the only method likelyto meet with the approval of all the various partiesto be consulted.

A further objection to the original joint amend-ments was made by the representatives of France,the Netherlands and the United States, on theground that they implied unjustified criticism ofthe Trusteeship Council. It was pointed out thatthe Council had devoted five years of careful studyto the Ewe problem. The representative of theUnited States held that if no solution had beenreached, it was because it was realized how com-plicated the problem was. Moreover, the problemwas constantly changing. He stated that the emph-asis had shifted from a unification of the Ewepeople to the unification of both Togolands andadded that recent developments in the Gold Coastwould undoubtedly further affect the situation.Observing that the peoples of the two Togolands


were in a state of evolution, he considered thatthe Fourth Committee should not attempt to de-cide at once on a final settlement but should ac-cept the proposals for a Joint Council and at thesame time arrange to obtain more informationfrom the peoples of the Territories. He supportedthe proposed amended draft resolution with theexception of the proposal to delete the referenceto the serious efforts made by the TrusteeshipCouncil to find a solution to the unification prob-lem. The representatives of Brazil and Iraq re-marked that the fact that, after five years of con-sideration by the Trusteeship Council, the Eweproblem was before the General Assembly wassufficient indication that the Council's efforts inthe matter had failed.

The Anglo-French draft resolution (A/C.4/-L.163), as amended by Brazil, Ecuador, Egypt,India, Indonesia, Iraq, Pakistan, the Philippinesand Uruguay (A/C.4/L.168) and sub-amended byFrance and the United Kingdom (A/C.4/L.182/-Rev.1), was voted on at the 234th meeting of theFourth Committee on 2 January 1952. Each of theamendments was adopted, in a paragraph-by-para-graph vote ranging from unanimity to a vote of23 to 17, with 5 abstentions, in favour of theamendment to delete the reference, contained inthe original Anglo-French draft resolution, to theCouncil's serious efforts to solve the unificationproblem.

Both France and the United Kingdom abstainedin the vote on the amended draft resolution asa whole, the representative of the United King-dom explaining that their original draft resolutionhad contemplated immediate action, whereas theamended version adopted by the Fourth Commit-tee would inevitably result in delay. He notedthat the Trusteeship Council and the Administer-ing Authorities had been criticized for delays infinding solutions to Togoland problems and hopedthat any delay which might occur as a result ofthe action of the Fourth Committee would not beattributed to the Administering Authorities. Therepresentative of France associated himself fullywith these observations.

The amended draft resolution as a whole wasadopted by a roll-call vote of 35 to none, with 12abstentions.

(6) Resolution Adopted by the General Assembly

The resolution recommended by the FourthCommittee (A/2061) was adopted by the Gen-eral Assembly without further discussion orchange, at the 361st plenary meeting on 18 Janu-

ary 1952, by 46 votes to none, with 7 absten-tions, as resolution 555(VI).

The rapporteur of the Fifth Committee in-formed the Assembly that the effect on the 1952budget estimates of the adoption of this resolu-tion had been considered by the Fifth Commit-tee at its 329th meeting on 17 January 1952. TheCommittee had agreed to recommend to the As-sembly that the financial implications of this res-olution might involve additional expenditures for1952 within a maximum of $41,000, which sumrepresented the cost of a five-week special missionto the area.

The resolution adopted by the Assembly read:"The General Assembly,"Noting that, in accordance with General Assembly

resolution 441 (V) of 2 December 1950, the Trustee-ship Council has devoted a special chapter of its annualreport to setting forth the steps undertaken in connexionwith the Ewe and Togoland unification question,

"Noting in particular the endorsement by the Trustee-ship Council of the decision of the Administering Au-thorities concerned to terminate the activities of theStanding Consultative Commission and to establish aJoint Council for Togoland Affairs to advise them onmatters of common concern to the two Trust Territories,and to assist in harmonizing development in theseTerritories,

"Noting that the Trusteeship Council also recom-mended that the two Administering Authorities ensurethat the scope of responsibilities of the proposed jointcouncil be sufficiently broad to enable it to exercise itsfunctions with respect to all questions of commonconcern to the people of the two Trust Territories,including questions of political, economic, social, edu-cational and cultural development,

"Noting that the Trusteeship Council further recom-mended that the method of determining the compositionand selecting the members of the joint council be suchas to ensure, if possible, the participation of the majorgroups in the two Trust Territories,

"Having examined the arrangements made by the twoAdministering Authorities concerned for the establish-ment and operation of the joint council as set out indocument A/C.4/198,

"Having considered the oral representation made inregard to these arrangements by the representatives ofthe All-Ewe Conference, the Joint Togoland Congressand the Comité de l'unité togolaise,

"1. Notes the objections raised by those representa-tives against the proposed arrangements in respect of,firstly, their inadequacy as a means of solving the Eweand Togoland unification problem and, secondly, theirfailure to ensure equitable and democratic representa-tion of all sections of the population;

"2. Notes with concern, from the statements madeby those representatives in amplification of petitionsreceived from the Trust Territories, the atmosphere oftension which appears to exist in the Territories as aresult of the delay in arriving at an adequate solution,and notes also the statements in a different sense madeby the representatives of the Parti togolais du progrès


TRUSTEESHIP COUNCIL'S EXAMINATION OF ANNUAL REPORTS FROM ADMINISTERING AUTHORITIES

Period covered by annual reports

Date transmitted by the Secretary-General to Council members

Opening statement by the specialrepresentative of the Administer-ing Authority

Written and oral questions by Coun-cil members and answers by spe-cial representative

General discussion by the Councilon the annual report

Appointment of a drafting commit-tee*

Report of the drafting committeeand additions proposed by theSecretariat

Consideration of draft report by theCouncil

Adoption of report

ANNUAL REPORTS EXAMINED DURING EIGHTH SESSION

Nauru

1 July 1949–30 June1950

31 Jan. 1951(T 827)

331st meeting27 Feb. 1951

331st, 332ndmeetings

27, 28 Feb.1951

332nd–334thmeetings

28 Feb.–2Mar. 1951

334th meeting2 Mar. 1951

T/L.144, 145,163

341st–343rdmeetings

13–15 Mar.1951

343rd meeting15 Mar. 1951(10 votes to

0, 2 absten-tions)

New Guinea

1 July 1949–30 June1950

31 Jan. 1951(T/828)

334th meeting2 Mar. 1951

334th, 337th–339thmeeting

7–9 Mar. 1951

339th–341stmeetings

9–13 Mar.1951

341st meeting13 Mar. 1951

T/L.160, 161,166

344th, 345thmeetings

16 Mar. 1951

345th meeting16 Mar. 1951(10 votes to

0, 2 absten-tions)

Western Samoa

1 Apr. 1949–31 Mar.1950

13 Oct. 1950(T/800)

318th meeting2 Feb. 1951

T/L.120 &321st–323rdmeetings

12–14 Feb.1951



T/L.133–135

333rd, 335th–337thmeetings

1, 5–7 Mar.1951

337th meeting7 Mar. 1951(11 votes to

0, 1 absten-tion)

Trust Territoryof the

Pacific Islands

1 July 1949–30 June1950

8 Jan. 1951(T/820)


T/L.125 &127 &325th–328thmeetings

16–21 Feb.1951

328th–329thmeetings

21, 23 Feb.1951


T/L.139, 142150, 156

340th–342ndmeetings

12–15 Mar.1951

342nd meeting15 Mar. 1951(10 votes to

0, 1 absten-tion)

* Members of the drafting committees were as follows: Nauru—China, France, Iraq, United States; New Guinea—Argentina, New Zealand, Thailand, the United States; Western Samoa—Argentina, China, France, the UnitedStates; Trust Territory of the Pacific Islands—Australia, Belgium, Dominican Republic, Thailand; Ruanda-Urundi—Australia, Iraq, New Zealand, the USSR; Tanganyika—Dominican Republic, New Zealand, Thailand, the United


TRUSTEESHIP COUNCIL'S EXAMINATION OF ANNUAL REPORTS FROM ADMINISTERING AUTHORITIES

ANNUAL REPORTS EXAMINED DURING NINTH SESSION

Ruanda-Urundi

19491950

25 July 1950(T/784 &

Add.1)29 May 1951(T/912)

357th meeting21 June 1951


21-26 June1951

360th, 361stmeetings

26, 27 June1951

361st meeting27 June 1951

T/L.173 &Corr.1, 197,202

371st, 379thmeetings

12, 23 July1951

379th meeting23 July 1951(10 votes to

1, 1 absten-tion)

Trust Territoryof

Somaliland

Apr.–Dec.1950

1 May 1951(T/902)


T/L.179 &348th–350thmeetings

8-12 June1951

351st, 352ndmeetings

12, 14 June1951

352nd meeting14 June 1951

T/L.170 &Corr.1, 184,189, 193& Add.1


2, 10 July1951


1)

Tanganyika

19491950

8 Aug. 1950(T/786 &

Add.1)15 May 1951(T/904)

3 52nd meeting14 June 1951

352nd–355thmeetings

14-19 June1951


19, 20 June1951


T/L.176 &Corr.1, 187,194, 195


5, 11 July1951


1, no ab-stentions)

Cameroonsunder BritishAdministration

19491950

25 Sept. 1950(T/796)21 May 1951(T/906)

361st meeting27 June 1951

361st–363rd,365thmeetings

27-29 JuneJune 1951,3 July1951


3, 5 July1951

366th meeting5 July 1951

T/L.181 &Corr.1,198, 204,205


17, 23 July1951

3 7 9th meeting23 July 1951(10 votes to

1, 1 absten-tion)

Cameroonsunder FrenchAdministration

19491950

11 Aug. 1950(T/788)28 May 1951(T/910)



6-10 July1951

369th–371stmeetings

10-12 July1951

371st meeting12 July 1951

T/L.182 &Corr.1, 206,215, 225

379th, 381st,383rdmeetings

23, 26, 30July 1951

383rd meeting30 July 1951(10 votes to 1,

1 absten-tion)

Togolandunder BritishAdministration

19491950

8 Aug. 1950(T/787 &

Corr.1)22 May 1951(T/909 &

Add.1)


370th–373rdmeetings

11-16 July1951

373rd–375thmeetings

16-18 July1951


T/L.192 &Corr.1, 210& Add.1,222, 226

381st, 383rdmeetings

26, 30 July1951

383rd meeting30 July 1951(11 votes to

1)

Togolandunder FrenchAdministration

19491950

27 July 1950(T/785)21 May 1951(T/907 &

Corr.1)

3 74th meeting17 July 1951


17-19 July1951


19, 23 July1951

3 7 9th meeting23 July 1951

T/L.196 &Corr. 1, 218,227, 228

382nd, 383rdmeetings

27, 30 July1951

383rd meeting30 July 1951(10 votes to

1, 1 absten-tion)

States; Cameroons under British administration—Belgium, Dominican Republic, Thailand, the United States; Camer-oons under French administration—Australia, China, Iraq, the United Kingdom; Togoland under British administra-tion—Argentina, Australia, China, France; Togoland under French administration—Argentina, Australia, China,the United Kingdom; Trust Territory of Somaliland—Argentina, China, France, the United Kingdom.


and the Union des Chefs et des populations du nord duTogo sous administration française;

"3. Notes further the comments of the two Adminis-tering Authorities concerned on the observations of thepetitioners;

"4. Urges the two Administering Authorities con-cerned and the peoples involved to exert every effortto achieve a prompt, constructive and equitable settle-ment of the problem, taking fully into account thefreely expressed wishes of the people concerned;

"5. Recommends to this end that the AdministeringAuthorities consult fully with the various parties andgroups concerned before constituting the proposed jointcouncil, with a view to devising satisfactory proceduresfor the election of representatives to the Council;

"6. Recommends that the Administering Authorities,in consultation with the representatives of the peoplesconcerned, extend the functions and powers of the jointcouncil to enable it to consider all aspects of the Eweand Togoland unification problem and to make recom-mendations thereon;

"7. Recommends, in view of the urgency of thisproblem, that the Trusteeship Council devote more in-tensive attention to all aspects of it affecting the twoTrust Territories;

"8. Recommends further that the Trusteeship Coun-cil, at its tenth session, arrange for the dispatch to theTrust Territories concerned of a special mission, oralternatively, for its next periodic visiting mission tothese two Trust Territories to devote sufficient time tothe problem to study it thoroughly, including the func-tioning of the proposed joint council, and to submit tothe Trusteeship Council a detailed report thereon, in-cluding specific recommendations, which shall take fullaccount of the real wishes and interests of the peoplesconcerned;

"9. Requests the Trusteeship Council to instruct themission so dispatched to submit its report to the Councilfor consideration at its eleventh session;

"10. Requests the Trusteeship Council to submit tothe General Assembly at its seventh regular session aspecial report covering all aspects of the problem."

F. GENERAL DISCUSSION OF CONDITIONS IN TRUST TERRITORIES

The general debate on the report of the Trus-teeship Council (A/1856) and on conditions inTrust Territories was held at the 219th, 221st,225th, 227th, and 230th-232nd meetings of theFourth Committee, respectively, on 5-7, 12, 14and 18-20 December 1951.

Some representatives, including those of the Do-minican Republic, Egypt, Iraq, Lebanon, Philip-pines and Syria, commented on the desirabilityof a revision of the Council's rules of procedureregarding the examination of petitions, the Eweproblem, visiting missions, administrative unionsand rural economic development.88

In his general remarks on conditions in TrustTerritories, the representative of the United Statessaid that in the political field real progress wasbeing made towards building the necessary foun-dations for self-government, although in somecases the rate of progress might usefully be ac-celerated. The process of learning the art of self-government, he stated, should begin at the localunit and be progressively broadened to includedistrict-wide and eventually territory-wide self-government.

In illustration, he referred to the Trust Terri-tory of the Pacific Islands where, it was stated,local municipalities had been organized on demo-cratic lines since the United States assumed Trus-teeship responsibility. Approximately 30 per centof the population of voting age enjoyed somesort of suffrage, and district councils were beingorganized. However, he observed, the people as

yet did not have sufficient territorial consciousnessto make possible the setting up of a territory-wide legislative or advisory council. The UnitedStates was pressing toward that objective as speed-ily as circumstances would permit.

Stating that progress was similarly being madein the economic, social and educational fields, hereferred to the need for capital, which must beobtained from either the Administering Authori-ties or from the International Bank for Recon-struction and Development.

Similarly, he said, experts for a variety of tasksmust be provided by Administering Authoritiesand the Technical Assistance Board. The UnitedStates representative also stressed the need forland reform, improvement of agricultural methodsand marketing, the solution of social and inter-racial problems and the improvement of educa-tion. The Trusteeship Council, he stated, had beendeeply concerned with all these problems and wasdoing pioneering work in strengthening the socialfoundations of the people of Trust Territories. Hefully supported the work of the Trusteeship Coun-cil over the past year and expressed the hopethat the Fourth Committee would do likewise.

The representative of Denmark commended theTrusteeship Council on its report, stating that ithad followed the suggestions made during theAssembly's fifth session. He said that his delega-tion had been particularly interested in the ques-

88

For discussion of these problems in the Committeesee below, under separate headings.


tion of the status of women and related problems,such as child marriage. He then referred to therecommendations by the Trusteeship Council atits previous sessions regarding the status ofwomen, the prohibition of child marriage andthe abolition of corporal punishment. He stressedthat child marriage should be forbidden in allTrust Territories, as had been done in Territoriesunder Belgian and French administrations. Healso made a plea for the protection of fauna andflora and of historical monuments.

The representative of Iraq stated that the co-lonial concept in itself was dying, although it wasnot yet dead. New concepts of democracy weregaining strength in most parts of Africa. That,he said, was a most encouraging sign. With ref-erence to political matters, he said that the realproblem was whether any given Territory wasbeing administered with a view to its eventuallybecoming self-governing or independent, orwhether it was a mere field for exploitation.

Opposing the idea of fusion of a Territory withthe Metropolitan Power, he said that one greatempire had realized the futility of such a fusionand had come to a statesmanlike agreement withmany of its associates in Asia.

Other great empires, however, he said, still har-boured nineteenth century ideas of imperialism.He maintained that no African territory could befused with a Metropolitan country whose culturewas basically alien to it. The Administering Au-thorities should set up parliamentary institutionsin Trust Territories without delay in order totrain the people for self-government or independ-ence, the representative of Iraq said.

In the economic field, there was great back-wardness in the Trust Territories and, althoughthe Administering Authorities could not beblamed for this state of affairs, both the GeneralAssembly and the Administering Authoritieswould be liable to blame if development were tooslow, he observed. He welcomed the valuablestudy on land reform which had been initiatedby the Trusteeship Council. Stressing the need forroads, schools and hospitals, he stated that moreshould be done in these fields. As regards peti-tions, the representative of Iraq was dissatisfiedwith the way in which they were handled andexpressed the hope that the Fourth Committeewould seriously consider the question at the cur-rent sesión.

The representative of Lebanon stated that thepolicy of assimilating peoples generally culmin-ated in uprooting populations, since they assimi-

lated foreign civilization only imperfectly and nolonger felt at home in their own country. TheTrusteeship Council therefore, he stated, shouldtake great care that the Administering Authori-ties guided the Trust Territories to political andeconomic independence in the spirit of the Char-ter and refrained from making the Territoriesappendages of their own economy.

The representative of Egypt stated that theCouncil appeared to have lost some of the vigourwhich had marked its initiation of the Interna-tional Trusteeship System. While in 1948 it hadnot hesitated to attack shortcomings in the ad-ministration of the Trust Territories, now itsattitude seemed to be one of deference to theAdministering Authorities. He emphasized partic-ularly the need, in Trust Territories, of highereducation, stating that this was still inadequatein all Territories. In the economic field, he stressedthe necessity for the development of secondarylocal industries for the production of consumergoods and for long-term investments in other in-dustrial enterprises. This alone, he stated, wouldmeet the problem of increasing populations whichcould not be supported by agriculture.

The representative of India stated that he hadhad the privilege of visiting certain African Terri-tories and had been struck both by the extent ofmaterial resources being developed and by thewide scope of planning in industry, agriculture,commerce and health and other spheres of humanactivities. He was glad to note that attention wasbeing paid not only to increasing the materialwealth of the Trust Territories but also to assistingtheir peoples to develop socially and politicallywith a view to preparing them for self-govern-ment.

In the political field, the representative of Indiaexpressed his satisfaction that the Council hadconcerned itself with such problems as the devel-opment of the system of indigenous authorities anddistrict government. In existing circumstances, hefelt, excessive centralization should be avoidedsince it led to conflicts. He concluded by statingthat in the Trust Territories more use should bemade of the assistance of agencies like the UnitedNations Educational, Scientific and Cultural Or-ganization (UNESCO), the Food and Agricul-ture Organization (FAO) and the World HealthOrganization (WHO). In the educational field,he suggested, every Member State should receive,each year, a number of students from dependentcountries to offset the shortage of teachers inthose countries.


The representative of the Philippines stated thatthe report of the Trusteeship Council containedno evidence of major changes in the administra-tion of Trust Territories. In 1951, the peoples inTrust Territories in Africa and the Pacific werestill, as in 1947, awaiting the day when theywould be permitted to take effective part in thedirection of the affairs of their countries, to havetheir children educated in well-equipped schools,to enjoy proper living and working conditionsand to benefit by all the blessings of moderncivilization.

He noted that the United Nations flag was stillnot being flown everywhere and at all times inthe Trust Territories. The Council's report showedthat, in four out of seven Trust Territories inAfrica, the Administering Authorities proposedto fly the United Nations flag "upon appropriateoccasions", which were not specified, and that,in the case of another Territory, all that had beendone was to take note of the recommendationregarding the flying of the flag. No informationwas given for the remaining two Territories. TheAdministering Authorities, he noted, had givenno information to the General Assembly as tothe practical difficulties in flying the United Na-tions flag.

The representative of Liberia stated that fromthe Council's report it appeared that in order toaccount for the slow rate of progress in someTerritories, the Administering Authorities wereasserting that the indigenous populations werelike backward children, incapable of assimilatingmodern ideas or higher education and were whollyignorant of their own interests. One Administer-ing Authority had even stressed the merits ofcorporal punishment, claiming that it was an in-digenous institution preferred by the indigenouspopulation to imprisonment. That State, he said,was displaying a complete disregard of the solemncommitments it had entered into when signingthe Charter.

Speaking of discriminatory practices, he re-ferred to the section of the Council's report deal-ing with Ruanda-Urundi where, it appeared, Euro-peans, Asians and Africans lived in separate quar-ters in urban areas, allegedly on account of thedifferences in their way of life. Why, he asked,had nothing been done to raise the standard ofliving of Africans in the past 30 years and whywas there such a difference in their way of life?

Further, he continued, in contravention of In-ternational Labour Conventions, hundreds of in-digenous workers had been sentenced in Ruanda-

Urundi for leaving their work. Despite the prin-ciples of the Charter, women were not permittedto own or inherit property in that Territory. Theadministrative union between Ruanda-Urundi andthe Belgian Congo had led to the imposition onthe Trust Territory of many discriminatory prac-tices in force in the Belgian Congo, he stated.

In some parts of Africa, he said, the indigenouspopulation had been expelled from its ancestrallands in order to make room for European set-tlers. This transfer of populations, he said, shouldbe carefully considered by the Trusteeship Coun-cil. As regards education, he felt that teachingshould not be in the vernacular because of themultiplicity of the dialects and languages. Teach-ing in the language of the Administering Authori-ties, he maintained, would advance the indigenouspeople more rapidly towards self-government. Heexpressed satisfaction over the improvement inmedical services.

The representative of Argentina stated that hisdelegation had always recommended and contin-ued to recommend the granting of voting rightsto the inhabitants and increasing their participa-tion in the legislative and administrative machin-ery. In regard to economic affairs, the Argentinianrepresentative stressed the need to ensure bal-anced budgets in the Territories, to diversify theireconomies and encourage the utilization of thenatural resources. He also urged that wages andstandards of living should be raised and that dueattention should be paid to child welfare. He fur-ther recommended the institution in Trust Terri-tories of contracts of employment, compensationfor dismissal, compensation for industrial acci-dents, sickness benefits and the institution of amedical-aid scheme. He also urged the necessityfor the total abolition of corporal punishment. Asfar as education was concerned, his delegation rec-ommended an increase in the number of secularschools, the establishment of secondary and tech-nical schools, teaching in the vernacular, and theinstitution of courses for adult illiterates so thatthey could take part in the political life of theirrespective Territory.

The representatives of Czechslovakia, the Uk-rainian SSR and the USSR stated that the infor-mation contained in the Council's report was bothbrief and tendentious. However, even from thematerial supplementing the report, such as peti-tions, reports of visiting missions and the officialrecords of the Council, it could be gathered thatthe Administering Authorities were exploiting theresources of the Trust Territories for their own


Metropolitan industries, were alienating the landsof the indigenous people and were exploiting in-digenous workers. In short, they were behavinglike colonial Powers and were attaching the TrustTerritories to neighbouring colonies, to the det-riment of the inhabitants of the Trust Territories.

The Administering Authorities, they said, didnot permit the indigenous inhabitants to partici-pate in the administration of the Territories andthe so-called representative organs were in factwithout any jurisdiction. Thus, in a petition (T/-Pet.4/35) received from the Cameroons underBritish administration, the petitioners complainedthat the inhabitants of the Territory were not be-ing trained for independence. Administration wasbased on the tribal system, which was an instru-ment to control the indigenous inhabitants with-out difficulty. The tribal chiefs merely served theinterests of the Administering Authorities, a factthat was attested by petitions received from the

5/59 & T/Pet.5/62) and from Tanganyika (T/-Pet.2/96).

These representatives maintained that the grad-ual transfer of lands belonging to the indigenousinhabitants to. large plantations owned by monop-olies and the investment of capital for workingmineral and forest resources were leading to theformation of a class of wage-earners, particularlyin the African Territories. They stressed the ne-cessity of a labour code establishing wage ratesand working hours and guaranteeing fundamentaltrade union rights, such as the right to strike. Theyalso emphasized the necessity of social legislationmaking provisions for sickness, accident and oldage insurance.

Referring to the unrepresentative character ofthe indigenous assemblies it was stated that, in theCameroons under French administration, only 39,-615 electors had taken part in the 1946 elections,out of a population of three million. As a result,three million people were represented by 24 mem-bers, while 8,980 French nationals had sixteenmembers. In Togoland under French Administra-tion, 997,000 inhabitants were represented by only24 members in the so-called Representative As-sembly, whereas the 1,443 Europeans had six rep-resentatives. As could be seen from a petition(T/Pet.6/23 — T/Pet.7/21) from members ofthat Assembly, it had only a consultative voice inbudgetary matters. It had no legislative power andwas not even entitled to discusss political ques-tions.

The representative of Czechoslovakia statedthat the Council's report, instead of criticizing theAdministering Authorities, had only paid themcompliments. He therefore could not associatehimself with the Council's conclusions, and wouldvote in favour of any proposal which was likelyto secure full participation by the indigenous in-habitants in the administration of their Territories.

In a detailed consideration of the political con-ditions in various Trust Territories, the represent-ative of the USSR cited the case of Tanganyikaunder British administration stating that the EastAfrica Inter-Territorial Organization establishedby the Administering Authority was knitting suchclose ties between the Trust Territory and theneighbouring territories of Uganda and Kenyathat Tanganyika had no chance to develop towardsautonomy and independence as a separate unit.

In the Trust Territory of Somaliland underItalian administration the administrative structureremained similar to what it had been under thecolonial regime, he stated. The main adminis-trative posts were reserved for Italian officials,and Somali officers were being replaced by Ital-ians. Despite the formal assurances given to theFourth Committee, the Administering Authorityof that Territory was carrying out reprisals againstindividuals and organizations, such as the SomaliYouth League which had opposed the grantingof the administration of the Territory to Italy.

As regards the Trust Territory of the PacificIslands, the representative of the USSR said thatall authority in the Territory was still in the handsof the High Commissioner, who was responsibleto the United States Secretary of the Navy. TheTerritory was therefore administered as a central-ized military organization. There was no legisla-tive organ for the Territory as a whole, and theAdministering Authority's report showed clearlythat it only remotely contemplated setting upsuch a body.

The USSR representative concluded that theAdministering Authorities tended to intensifyeven more the colonial regime in Trust Terri-tories. The USSR representative then analysed theeconomic conditions in the Trust Territories ofthe Pacific Islands, New Guinea, Tanganyika,Ruanda-Urundi and the two Cameroons to showthat the economies of all these Territories wereprimitive, that land was taken away from indig-enous inhabitants in the interest of foreignersand that indigenous agricultural workers were ex-ploited by foreign concerns.

Cameroons under French administration (T/Pet.


With regard to health services, the representa-tive of the Ukrainian SSR stated that in Ruanda-Urundi the Administering Authority maintainedseven hospitals, four of which were for the in-digenous inhabitants, who numbered 3,800,000,and three for Europeans, who numbered 3,407.In Togoland under British administration, therewere only three hospitals and four doctors for384,000 indigenous inhabitants and the so-calledten-year plan did not provide for the building ofa single hospital. A medical survey in the Cam-eroons under British administration in 1949 hadshown that 7 per cent of the population sufferedfrom malaria and 37.5 per cent from other dis-eases. The expenditure in that Territory forcourts, prisons and the police force in 1949-1950had amounted to 21.6 per cent of the total budget,while the expenditure for the health services hadamounted to only 10.5 per cent. The expenditure

for social welfare services in Tanganyika in 1949had amounted to £16,975, while the expenditurefor the police had amounted to £328,400.

The representative of Yugoslavia stated that,although the form of the Council's report hadbeen improved, he could not express satisfactionwith the manner in which the Council had dealtwith the problems which fell within its compe-tence. Since 1947, the condition of the indigenouspopulation had not improved, either in respectof the standard of living, corporal punishment,illiteracy, or public health; yet the report of theTrusteeship Council contained warm congratula-tions to the Administering Authorities, repeatedsome 35 times. Such an attitude on the Council'spart, he stated, ran the risk of hindering progress.In these circumstances, he believed, the Coun-cil should increase the number of recommenda-tions.

G. INFORMATION ON THE IMPLEMENTATION OF RESOLUTIONSRELATING TO TRUST TERRITORIES

The question of information on the implemen-tation of Trusteeship Council and General As-sembly resolutions was considered by the Assem-bly at its sixth session at the 244th to 246thmeetings of the Fourth Committee from 11-14January and at the 361st plenary meeting on 18January 1952.

The Assembly, in resolution 436(V) of 2 De-cember 1950,89 had requested the Secretary-General:

(1) to prepare a list, classified by subjects, of suchresolutions, including in each case the text of the oper-ative part of the document;

(2) to report to its sixth session on the measurestaken by the Administering Authorities to implementsuch resolutions, using as a source the reports of theTrusteeship Council; and

(3) if there had been no action on the part of anAdministering Authority in respect of any particularresolution, to set forth the reasons given concerningthat matter.

Accordingly, a memorandum was submitted bythe Secretary-General which was divided intoeleven chapters, dealing with: Tanganyika andRuanda-Urundi (A/1903); Cameroons underBritish administration, Cameroons under Frenchadministration, Togoland under British adminis-tration, Togoland under French administration,and the Ewe problem affecting Togoland underboth administrations (A/1903/Add.1); WesternSamoa, Nauru, New Guinea and the Trust Terri-

tory of the Pacific Islands (A/1903/Add.2). Thereport dealth with the international and regionalrelations of each Trust Territory, as well as ad-vancement in political, economic, social and edu-cational fields in each Territory.

The Committee also had before it a Cubandraft resolution (A/C.4/L.188/Rev.1), by whichthe General Assembly would:

(1) take note of the memorandum by the Secretary-General (A/1903 and Add.1 and 2);

(2) observe that in certain cases effect had not yetbeen given to all Trusteeship Council and GeneralAssembly recommendations and resolutions applicable toTrust Territories;

(3) observe that the Council had not carried out theAssembly's request (433(V) )90 to report its conclusionson the extent of the action taken by the AdministeringAuthorities to implement Council and Assembly recom-mendations and on the measures which the Council feltshould be taken in view of those conclusions;

(4) recommend the Administering Authorities whichhad not yet given effect to all such recommendations anddecisions to implement them as speedily as possible, andto inform the Trusteeship Council of the steps which hadbeen taken or which it was proposed to take in thatrespect; and

(5) again request the Trusteeship Council to state ineach case, in the appropriate section of its report to theAssembly, its conclusion on the extent of the actiontaken by the Administering Authority and also to indi-cate the measures which, in its opinion, should beadopted in view of those conclusions.

89 See Y.U.N., 1950, p. 112.90 See Y.U.N., 1950, p. 111.


Introducing his draft resolution, the representa-tive of Cuba said that the information presentedby the Secretary-General's memorandum was ofgreat value to the international community inproviding a check on the results of the operationof the International Trusteeship System. The pic-ture that emerged was not very encouraging, sinceit was clear that many resolutions had not beenfully implemented by the Administering Authori-ties, he said.

In many cases, no reply at all had been given bythe Administering Authorities; in others, the ex-planations offered and the reasons adduced fornon-compliance were frequently unconvincingand sometimes wholly unacceptable to his dele-gation. In many cases in those two categories, andalso where the action taken had not been con-sidered adequate, the Trusteeship Council hadfelt bound at later sessions to reiterate and amplifyprevious recommendations, but unfortunatelywith no better results. The reply that certainmatters were under consideration would also ap-pear to be a euphemism, he added, and in mostsuch cases, after a lapse of years, no further in-formation on action taken or contemplated hadbeen offered to the Council.

The representative of Cuba then quoted atlength from the Secretary-General's memorandum,drawing attention to what he called specific in-stances of unfulfilled recommendations, in respectof Trust Territories. He listed in detail cases inwhich the Administering Authorities had statedthat it was impossible to implement recommenda-tions at present; cases in which no steps had beentaken to implement resolutions; cases in whichno replies had been received from AdministeringAuthorities; cases in which action taken by theAdministering Authorities was not consideredsatisfactory by the Council; and cases in whichthe Administering Authorities had reported thatrecommendations were under consideration.91

During the debate on the Cuban draft resolu-tion, the representatives of Australia, Belgium,France, New Zealand and the United Kingdomsaid that the Administering Authorities wereexercising their responsibilities fully, and wereconsidering the problems involved in implement-ing the recommendations.

The representative of the United Kingdom saidthat the Administering Authorities were not al-ways in a position to put recommendations intoeffect as rapidly as they would like, as they hadto allocate their resources with due regard to theneeds of the various services and according to

their judgment as to the best balance of develop-ment. It was natural that Council resolutions urg-ing progress towards desirable objectives—whichthe Administering Authorities accepted—shouldbe reiterated.

It sometimes happened that the AdministeringAuthority was required to choose between tworesponsibilities: for example, when it was con-vinced on the basis of its experience and itsintimate knowledge of local conditions that aCouncil or Assembly recommendation was incom-patible with the proper administration of theTerritory or contrary to the true interests of thepopulation. The Administering Authority wasthen faced with an extremely difficult problem.The United Kingdom Government considered thatin such circumstances its first duty was to theTrust Territory and the population. From themoral point of view, it would be easy for theUnited Kingdom to accept all recommendationsaddressed to it without raising any objections,regardless of the effect of their implementationon administration, and thus to avoid any criticismor censure in the Trusteeship Council and theFourth Committee; but it believed that to do thatwould be to fail in its duty towards the peopleof the Territories for whose administration it hadbeen made responsible.

The Administering Authority, he pointed out,had full legislative, administrative and judicialpowers in the Trust Territories, subject to theprovisions of the Trusteeship Agreement and theCharter.

The representative of Australia said that hisGovernment made a conscientious study of allthe recommendations of the General Assemblyand the Trusteeship Council, and discharged itsobligations under the Charter and the TrusteeshipAgreements. The Cuban draft resolution, he said,was based on a misconception, since it implied, onthe one hand, that the Administering Authoritieswere in error and failed to discharge their obliga-tions by not conforming immediately and strictlywith all United Nations recommendations and,on the other hand, that they tended to treat therecommendations lightly.

He agreed with the United Kingdom represen-tative that experience acquired in administeringTerritories sometimes made it difficult for theAdministering Authorities to reconcile the rec-ommendation made to them with the action theyconsidered they should take in the best interest

91 The Cuban representative's statement was published

as a Committee document (A/C.4/L.214).


of the indigenous inhabitants. It should be recog-nized that it was the Administering Authoritywhich had the responsibility and the discretion inthe final analysis, of deciding how far and whena recommendation of the General Assembly couldbest be implemented.

Further, the contents of the AdministeringAuthorities' annual reports, the Trusteeship Coun-cil's official documents and the oral statements ofthe special representatives should be sufficient toprove that the Administering Authorities did nottreat the recommendations lightly, but on thecontrary gave them all due consideration.

The representative of New Zealand said thatthere seemed to be a tendency in the Committeeto confuse the achievement of self-government orindependence with the application of Westerndemocratic principles in the Trust Territories. Itmust, however, be borne in mind that the idea ofdemocracy was not original to the Territories, buthad, in some sense, been imposed upon them fromoutside, at least in most cases. Even in the regionswhere democracy existed, its development hadtaken several centuries. He warned of the dangerof generalizing in fields which called for carefuland specialized study.

The representative of France stated that hisGovernment was always anxious to carry out theresolutions of the Trusteeship Council and of theGeneral Assembly. The Cuban draft resolution,however, did not take sufficient account of thedifficulties inherent in the exercise of administra-tive and governmental responsibilities.

The representative of Belgium also expressedthis view. Obviously, if the Administering Author-ities implemented resolutions which they thoughtinopportune, and if such resolutions had unde-sirable consequences for the Territories concerned,they would be held responsible for those conse-quences, he said.

Support for the Cuban draft resolution wasexpressed by the representatives of Brazil, Indiaand the United States, among others.

The representative of India said that the repre-sentative of the United Kingdom had pointed outthat the Administering Authorities were respon-sible for maintaining order in the Territories undertheir administration, but it could not be assumedthat the responsibility was theirs alone. The UnitedNations was well aware of its obligations towardsthe indigenous populations, particularly as, atthe present stage of world political and socialevolution, the regions made up of colonial terri-tories were of particular importance and were

centres of real or potential international tension.All problems of that kind should be approachedwith the greatest care.

The representative of Brazil, agreeing withthis view, said that, as the Administering Authori-ties participated in the work of the Assembly andthe Council, the resolutions and recommendationshad been adopted only after the representatives ofall the Administering Authorities had had the op-portunity of giving their views on the possibilitiesof implementation. It was therefore quite naturalfor the Assembly to express surprise that someresolutions had either not been implemented oronly partly implemented. In the circumstances, itcould not be said that some resolutions might notbe in conformity with the interests of the TrustTerritories.

In spite of the complex nature of the problemsdealt with and of the varied conditions in thedifferent Territories, he said, there was no reasonto suppose that the members of the TrusteeshipCouncil or of the General Assembly were showingless caution and sound judgment than the Admin-istering Authorities when they voted on theproblems.

The United States representative said that therewere necessarily differences of opinion as to themethods of leading the indigenous populations toindependence. He supported the intention of theCuban draft resolution—to ensure the progressand general well-being of the indigenous popula-tions.

After the representative of Cuba had acceptedcertain oral drafting changes proposed by therepresentative of the United States, these tworepresentatives agreed on a revised text of thefinal paragraph (see below) (A/AC.4/L.204).

The Cuban draft resolution, as amended, wasadopted by the Committee (A/2059) at its 246thmeeting on 14 January, by a roll-call vote of 48to none, with 1 abstention, and by the Assembly,without objection, at its 361st plenary meetingon 18 January 1952, as resolution 560(VI). Itread:

''The General Assembly,"Recalling its resolutions 436(V) and 433(V) of

2 December 1950 concerning information on the imple-mentation of Trusteeship Council and General Assemblyresolutions relating to Trust Territories,

"Having considered the Secretary-General's memo-randum regarding information on the implementationof Trusteeship Council and General Assembly resolutionsrelating to Trust Territories,

"1. Takes note of the Secretary-General's memoran-dum regarding information on the implementation of


Trusteeship Council and General Assembly resolutionsrelating to Trust Territories;

"2. Observes that in certain cases effect has not yetbeen given to all Trusteeship Council and General As-sembly recommendations and resolutions applicable toTrust Territories;

"3. Observes that the action thus far taken by theTrusteeship Council does not give effect to the wishesof the General Assembly as expressed in resolution433(V), paragraph 1 (d);

"4. Expresses the hope that the Administering Au-thorities which have not yet given effect to all such

recommendations and resolutions will implement themas speedily as possible and inform the TrusteeshipCouncil of the steps which have been taken or whichit is supposed to take in that respect;

"5. Requests the Trusteeship Council, in order toenable the General Assembly to have clearly at its dis-posal all the knowledge necessary for the fulfilment ofits duties with regard to the International TrusteeshipSystem, to include in each case in the appropriate sectionof its report to the General Assembly such conclusionsas it may deem necessary regarding the action taken bythe Administering Authority and regarding the measureswhich, in its opinion, should be adopted in view ofthose conclusions."

H. ATTAINMENT BY THE TRUST TERRITORIES OFSELF-GOVERNMENT OR INDEPENDENCE

During the discussion in the General Assemblyof the report of the Trusteeship Council (A/-1826), a joint draft resolution was introduced atthe 239th meeting of the Fourth Committee on8 January 1952 by Haiti, India, Lebanon, thePhilippines and Yemen (A/C.4/L.187).

In its operative part, the joint draft would havethe Assembly note that in respect of no TrustTerritory except Somaliland had information beensubmitted as to the time and manner in whichthe Territory was expected to attain self-govern-ment or independence. Accordingly, the Assemblywould invite the Administering Authorities ofthe Trust Territories other than Somaliland toinclude in each annual report information on:

(1) measures taken or contemplated which areintended to lead the Territory as soon as possible toself-government or independence;

(2) the manner in which in these respects the parti-cular circumstances of the Territory and its people, aswell as the freely expressed wishes of the peoples con-cerned were being taken into account;

(3) the adequacy of the provisions of the TrusteeshipAgreements in these respects; and

(4) the period in which the Trust Territory wasexpected to become self-governing or independent.

The Fourth Committee discussed the joint draftresolution at its 239th to 241st meetings, on 8 and9 January 1952.

The sponsors of the joint draft stated that underthe Trusteeship System the Trust Territories weretreated as countries which were not yet able tostand on their own and which the AdministeringAuthorities were expected to lead to self-govern-ment or independence under the auspices of theUnited Nations. Accordingly, and while there wasno question of suspecting certain Powers of wish-ing to prolong the trusteeship status of thoseTerritories indefinitely, it would seem logical and

proper that the Administering Authorities shouldstate when they expected the Territories for whichthey were responsible to attain political emanci-pation. It was also proper that they should supplythe United Nations with information from whichthe General Assembly could learn annually whatmeasures had been taken or were contemplated bythe Administering Authorities with a view toleading the Trust Territories to self-governmentor independence with the least possible delay. Ifthe General Assembly had these particulars, aclear and precise policy towards the populationsof Trust Territories could be worked out, theserepresentatives considered.

The terms of the joint draft resolution werefully consistent, they stated, with Article 76 ofthe Charter and, more generally, with the spirit ofthe International Trusteeship System.

The United Kingdom proposed an amendment(A/C.4/L.192) to delete the words "taken orcontemplated" in the paragraph relating to in-formation on measures intended to lead a Territoryto self-government or independence, and to deletethe whole of the paragraph regarding informationon the period of time in which the attainment ofself-government or independence was envisaged.

Support for the joint draft resolution (A/C.4/-L.187) was expressed by the representatives ofBrazil, Chile, Czechoslovakia, the Dominican Re-public, Egypt, El Salvador, Greece, Guatemala,Indonesia, Poland, Syria, the USSR and Vene-zuela.

These representatives, broadly speaking, agreedwith the views expressed by the sponsors andadded that adoption by the Assembly of the jointdraft resolution would serve to meet the interestsof the indigenous inhabitants of the Trust Terri-tories and give them a new hope in the United


Nations as well as to encourage them to co-operatewith the Administering Authorities in the pro-gressive development of political institutions.These representatives felt, moreover, that actionby the Assembly in this respect would contributeto the general peace and security. Further, theystated, the only way of gaining experience ingovernment was to exercise the functions of gov-ernment. It was therefore indispensable that theindigenous inhabitants should participate directlyin the administration of their Territories.

The representatives of Brazil and Chile, amongothers, said that they were conscious of the sacri-fices which the Administering Authorities weremaking and of the burden they were bearing inundertaking the responsibility of administeringthe Trust Territories.

The representative of the Dominican Republicconsidered that the fundamental differences inthe social, economic and political structure of thevarious Trust Territories had to be taken intoaccount. He supported the draft resolution as awhole, but asked for a separate vote on the para-graph referring to the provision of informationin respect of the period of time in which a TrustTerritory might be expected to attain the objectiveof self-government or independence.

Those representatives who supported the jointdraft resolution also expressed their opposition tothe United Kingdom amendment (A/C.4/L.193)on the ground that it would defeat the purpose ofthe draft resolution. It was pointed out by thesponsors of the joint draft resolution that noattempt was being made to fix a definite periodwithin which self-government or independencewould have to be achieved, nor to institute a uni-form period for all Territories. The AdministeringAuthorities, who were quite familiar with thesituation in their Territories, were being asked togive a considered opinion as to the approximateperiod within which any particular Territory undertheir administration might be expected to reachthe stage of self-government or independence.

The representatives of Australia, Belgium,France and the United Kingdom spoke in favourof the United Kingdom amendment. They stated,inter alia, that it was impossible to foresee when aTerritory would be ready for self-government orindependence. The rate of development varied,and all that the Administering Authorities coulddo was to use their experience to develop in thepeoples of the Territories the capacity to governthemselves, and to prepare them for politicalindependence. The responsibility of consulting the

inhabitants of the Territories rested with theAdministering Authorities; it could not be dis-sociated from the actual responsibility of govern-ment. It was pointed out, further, that the possi-bility of fixing a time limit for the attainment ofself-government had been fully explored whenthe Trusteeship Agreements were prepared andit had then been concluded that this would beimpossible. Premature emancipation, it was stated,would not be of advantage to the peoples con-cerned, while the fixing of an over-distant datemight, on the other hand, tend to retard ratherthan promote development.

At the 240th meeting, Denmark, Norway andSweden introduced a joint amendment (A/C.4/-L.194) to replace the paragraph referring to atime limit for self-government or independence bya text calling for information on:

"The rough estimate of the time which it [theAdministering Authority) considers, under existing con-ditions, may be needed to complete one or more of thevarious measures which are meant to create the pre-conditions for the attainment by the Trust Territory ofthe objective of self-government or independence".

Introducing the joint amendment, the represen-tative of Norway said that, although in sympathywith the object of the joint draft resolution, hecould not overlook the difficulties in the way offixing a time-table for the attainment of self-government or independence by the Trust Terri-tories. The joint amendment was designed toreconcile conflicting views, but also, and aboveall, to provide an objective and realistic approachto the problem. The principle of fixing a timelimit was admirable in itself, but its applicationgave rise to many difficulties. If the original textwere adopted, the Administering Authorities mightnot be able to comply with its provisions.

Opposition to the joint amendment was ex-pressed by the representatives of Egypt, Haiti,India, the Philippines and Yemen.

Brazil and Cuba introduced a joint amendment(A/C.4/L.195) to the joint amendment by Den-mark, Norway and Sweden to the effect that theproposed revised sub-paragraph should be in-serted as a new sub-paragraph and not as a sub-stitute for the existing text.

The Committee at its 241st meeting rejectedthe two parts of the United Kingdom amendment(A/C.4/L.193) by 34 votes to 11, with 6 ab-stentions, and by 32 votes to 9, with 10 absten-tions, respectively.

It adopted the amendment by Brazil and Cuba(A/C.4/L.195) to the joint amendment by Den-


mark, Norway and Sweden (A/C.4/L.194), by26 votes to 7, with 18 abstentions.

The joint draft resolution (A/C.4/L.187), asamended, was voted upon paragraph by paragraph,and adopted in votes ranging from 46 to none,with 3 abstentions, to 32 to 10, with 9 abstentions.The joint draft resolution as a whole, as amended,was adopted by a roll-call vote of 38 to 7, with6 abstentions.

The draft resolution recommended by the Com-mittee (A/2061) was adopted by the GeneralAssembly, without discussion, at its 361st plenarymeeting on 18 January 1952, as resolution 558(VI).

The Assembly voted separately on the sub-paragraph referring to the furnishing of informa-tion on the period of time in which it was ex-pected that the Trust Territory should attain theobjective of self-government or independence. Thesub-paragraph (2(e) , see below) was adopted bya roll-call vote of 32 to 15, with 9 abstentions.The voting was as follows:

In favour: Afghanistan, Brazil, Burma, ByelorussianSSR, Chile, Cuba, Czechoslovakia, Ecuador, Egypt, ElSalvador, Ethiopia, Greece, Guatemala, Haiti, India,Indonesia, Iran, Iraq, Lebanon, Liberia, Mexico, Pakistan,Philippines, Poland, Saudi Arabia, Syria, Ukrainian SSR,USSR, Uruguay, Venezuela, Yemen, Yugoslavia.

Against: Australia, Belgium, Canada, Costa Rica,Denmark, France, Luxembourg, Netherlands, New Zea-land, Nicaragua, Norway, Paraguay, Peru, Sweden,United Kingdom.

Abstaining: Argentina, Bolivia, China, Colombia,Dominican Republic, Israel, Thailand, Turkey, UnitedStates.

The draft resolution as a whole was adoptedby a roll-call vote of 38 to 8, with 11 abstentions.The voting was as follows:

In favour: Afghanistan, Argentina, Bolivia, Brazil,Burma, Byelorussian SSR, Chile, Colombia, Cuba,Czechoslovakia, Dominican Republic, Ecuador, Egypt,El Salvador, Ethiopia, Greece, Guatemala, Haiti, India,Indonesia, Iran, Iraq, Lebanon, Liberia, Mexico, Pakistan,Panama, Philippines, Poland, Saudi Arabia, Syria, Thai-land, Ukrainian SSR, USSR, Uruguay, Venezuela,Yemen, Yugoslavia.

Against: Australia, Belgium, Canada, France, Luxem-bourg, Netherlands, New Zealand, United Kingdom.

Abstaining: China, Costa Rica, Denmark, Israel, Nica-ragua, Norway, Paraguay, Peru, Sweden, Turkey, UnitedStates.

Resolution 558(VI) read:"The General Assembly,

"Considering that in the case of only one Trust Terri-tory, namely Somaliland under Italian administration,the Trusteeship Agreement provides, in accordance withGeneral Assembly resolution 289 A (IV) of 21 Novem-ber 1949, for a specific period of ten years at the endof which the Trust Territory shall be an independentsovereign State,

"Considering that under Article 76 b of the Charterone of the basic objectives of the International Trustee-ship System is the progressive development of the in-habitants of the Trust Territories towards self-govern-ment or independence as may be appropriate to theparticular circumstances of each Territory and its peoplesand the freely expressed wishes of the peoples concerned,and as may be provided in the terms of each TrusteeshipAgreement,

"1. Notes that in the case of no Trust Territoryother than that of Somaliland has the AdministeringAuthority concerned submitted information as to thetime and manner in which the Territory is expected toattain the objective of self-government or independence;and accordingly,

"2. Invites the Administering Authority of eachTrust Territory other than Somaliland to include ineach annual report on its administration information inrespect of:

"(a) The measures, taken or contemplated, whichare intended to lead the Trust Territory, in the shortestpossible time, to the objective of self-government orindependence;

"(b) The manner in which, in these respects, theparticular circumstances of the Territory and its peopleand the freely expressed wishes of the peoples concernedare being taken into account;

"(c) The adequacy of the provisions of the existingTrusteeship Agreement in relation to all the foregoingfactors;

"(d) The rough estimate of the time which it con-siders, under existing conditions, may be needed tocomplete one or more of the various measures whichare meant to create the pre-conditions for the attainmentby the Trust Territory of the objective of self-governmentor independence;

"(e) The period of time in which it is expected thatthe Trust Territory shall attain the objective of self-government or independence."

I. ADMINISTRATIVE UNIONS AFFECTING TRUST TERRITORIES

By resolution 326(IV) of 15 November 194992,the General Assembly asked the Trusteeship Coun-cil to complete its investigation, called for by theAssembly the previous year (224(III) )93, into allaspects of administrative unions in which TrustTerritories were involved. The Council was askedto give particular attention to the desirability of:

(1) having the Administering Authorities inform theCouncil before they created new administrative unionsor extended the scope of existing unions;

(2) the Administering Authority accepting, shouldit be impossible as a consequence of an administrative

92 See Y.U.N., 1948-49, p. 863.

93 Ibid., p. 760.


union to furnish clear and precise separate data relatingto a Trust Territory, such supervision by the Councilover the unified administration as the Council considerednecessary for the effective discharge of its responsibilitiesunder the Charter;

(3) establishing separate judicial organizations andlegislatures in each Trust Territory and eliminating anytype of legislative action originating in any other legisla-tive body with headquarters in a neighbourging Non-Self-Governing Territory; and

(4) taking into account the freely expressed wishesof the inhabitants of a Trust Territory before formingor extending any administrative, customs or fiscal union.

The examination of administrative unions wascontinued during the first half of 1950 by theTrusteeship Council's Ad Hoc Committee onAdministrative Unions. On this Committee's rec-ommendation the Council decided, by resolution293(VII) of 17 July 195094, to establish a Stand-ing Committee on Administrative Unions to ex-amine regularly the operation of administrativeunions and report to each Council session on anyunion in which a Trust Territory then under re-view participated.

In the same resolution, the Council listed anumber of safeguards which it considered neces-sary to assist it in discharging its functions and toavoid the possibility of any administrative unionoperating in such a manner as to prejudice theattainment of the objectives of the TrusteeshipSystem. These required, with respect to any TrustTerritory participating in such a union:

(1) that the Administering Authority furnish clearand precise separate financial, statistical and other datarelating to the Trust Territory;

( 2 ) that Visiting Missions be allowed access to anyinformation necessary on an administrative union toenable it to report fully on the Trust Territory;

(3) that the boundaries, separate status and identityof the Trust Territory be maintained; and

(4) that expenditures on the administration, welfare,and development of the Trust Territory for a given yearamount at least to the total public revenue derived fromthe Territory in that year.

The Standing Committee submitted to theCouncil, at its ninth session, separate reports con-cerning each of the following Trust Territories:Tanganyika (T/915), New Guinea (T/916),Togoland under British administration (T/917),Cameroons under British administration (T/918),and Ruanda-Urundi (T/919). The recommenda-tions of the Committee were in each case adoptedby the Council and included in the sections ofits reports to the General Assembly (A/1856)dealing with the respective Territories.95

The Assembly, having decided in 1950 (resolu-tion 443(V)) to defer its consideration of thequestion of administrative unions affecting Trust

Territories, again took up the question during itssixth session, at the 246th, 247th and 248th meet-ings of its Fourth Committee on 14 and 15 Janu-ary and at the 361st plenary meeting on 18January 1952.

At that time, the Fourth Committee had beforeit a joint draft resolution (A/C.4/L.196) sub-mitted by India and the Philippines and a draftresolution proposed by the USSR (A/C.4/L.174).

Under the joint draft resolution, the Assemblywould:

(1) note that the Council had as yet been unable toexamine fully all the aspects of administrative unions,particularly questions arising out of the membership ofthe Cameroons and Togoland under French administra-tion in the French Union;

(2) note, further, that some of the Council's recom-mendations had not yet been fully implemented;

(3) request the Council, in order to enable theAssembly to arrive at conclusions concerning existingadministrative unions affecting Trust Territories, to com-plete its investigation and to submit to the seventhsession of the Assembly a special report.

This report was to contain an analysis of eachof the administrative unions to which a TrustTerritory is a party, and of the status of theCameroons and Togoland under French adminis-tration arising out of their membership in theFrench Union, with special reference to the con-siderations enumerated in Assembly resolution326(IV) and the compatibility of existing ar-rangements with the provisions of the Charterand the Trusteeship Agreements.

In introducing this draft resolution, the repre-sentative of the Philippines observed that theCouncil's study in 1951 referred to the criterialaid down in its resolution 293(VII) rather thanto those laid down in the Assembly's resolution326(IV). Stating that the Standing Committeeon Administrative Unions did not appear to haveanalysed the statements of the Administering Au-thorities as exhaustively as might have been ex-pected, he considered that it should reconsider itsconclusions. In particular, he considered that thesituation of the Trust Territories under Frenchadministration should again be thoroughly ex-amined as he doubted whether the status of thoseTerritories was in accordance with the TrusteeshipSystem and whether it would, in practice, be pos-sible for them to obtain independence or self-government and to withdraw from the FrenchUnion should they desire to do so.

94 See Y.U.N., 1950, p. 795.95 See under Trust Territory concerned.


The USSR draft resolution (A/C.4/L.174)recommended that the Administering Authorities"set up in Trust Territories legislative and admin-istrative organs not subordinate to any organsestablished on the basis of union between theTrust Territories and the colonies", and takelegislative and other action to that end.

The representative of the USSR recalled that hisdelegation had many times in the past introducedproposals to this effect but that they had beenrejected. He stated that the Standing Committeeon Administrative Unions had passed in silenceover the fact, evidenced by all the material gath-ered, that it was the policy of the AdministeringAuthorities to deprive the Trust Territories oftheir special status and to bring about their an-nexation by joining them with neighbouring col-onies under the pretext of establishing administra-tive unions, thus violating the Trusteeship Agree-ments. Referring in turn to each of the Territorieson which the Standing Committee had submittedseparate reports, as well as to the Cameroons andTogoland under French administration, he saidthat the Trust Territories had lost their indepen-dent status and had been reduced to the level ofcolonies. He claimed that the indigenous inhabi-tants played no real part in the administrationof the Trust Territories and that the Administer-ing Authorities deliberately encouraged the preser-vation of the tribal system as a means of keepingthe people in a state of backwardness. Until legis-lative bodies had been set up in the Trust Terri-tories and the indigenous inhabitants had begunto participate in the work of those organs, hemaintained, there could be no question of inde-pendence or self-government. He stated that itwas imperative that the Assembly take steps toprevent the Administering Authorities from pur-suing their policy of annexing the Trust Territories.

The representative of the United States con-sidered the question of administrative unions oneof the most complex that faced the Committee.Administrative unions in the customs, fiscal andadministrative fields were expressly allowed underthe Trusteeship Agreements and although theymight be subject to abuse, they might also provehighly beneficial where a Trust Territory was sosmall that it could not successfully operate aloneall the necessary functions of government. Fromthe outset, the United States had been anxious toprevent the abuse of administrative unions. Ithad insisted that although administrative unionswere allowable where they proved beneficial, thestatus and identity of the Trust Territory con-

cerned must be maintained, and administrativeunions must not be used as a disguise for practicalannexation. Moreover, the political, social, educa-tional and cultural advancement of the people ofthe Trust Territories must not be subordinated tothe interests of any other territory with which anadministrative union was established. The UnitedStates had also insisted that separate financial andstatistical records must be supplied for each ofthe Trust Territories.

The representative of Iraq stated that the posi-tion of his Government on the question of ad-ministrative unions closely resembled that setforth by the United States representative.

Commenting on the joint draft resolution, therepresentative of the United States stated that, inhis opinion, the question of specific arrangementsor practices with regard to each of the administra-tive unions was a matter for the Trusteeship Coun-cil rather than for the Fourth Committee, but hisdelegation would not oppose the joint draft reso-lution. He pointed out, however, that to requestthe Council "to complete its investigation" couldbe interpreted to mean that the Trusteeship Coun-cil should terminate the work of its StandingCommittee on Administrative Unions. Since theproblem was necessarily a continuing one, hesuggested that these words be deleted from thethird paragraph of the joint draft (see above).This proposal was accepted by the sponsors ofthe joint draft resolution, who then further alteredtheir text to ask that the Council's special reportcontain a "complete" analysis of each of theadministrative unions.

The representatives of Australia, Belgium,France, the Netherlands, New Zealand and theUnited Kingdom opposed the USSR draft resolu-tion. They held that it was inconsistent with theTrusteeship Agreements, which authorized theexisting administrative arrangements affecting theTrust Territories concerned, and that it was basedon the false premise that the Administering Au-thorities were trying to annex the Trust Territories.

The representative of France assured the FourthCommittee that his Government had always scru-pulously respected its obligations under the Chart-er and the Trusteeship Agreements and had main-tained the special status of Togoland and theCameroons under French administration; more-over, these Territories were completely distinctfrom the neighbouring colonies.

The representatives of Australia, Belgium, NewZealand and the United Kingdom held that theTrust Territories under their administration de-


rived advantages from their association with theneighbouring Non-Self-Governing Territorieswhich they would not otherwise enjoy. The repre-sentative of Belgium pointed out that if the Trus-teeship Council effectively supervised administra-tive unions, such unions could not have the effectof reducing the status of the Trust Territories tothat of colonies. On the contrary, he stated, theactual effect of such unions was that the neigh-bouring Non-Self-Governing Territories receivedlegislation in conformity with the InternationalTrusteeship System.

The above representatives did not object to thejoint draft resolution submitted by India and thePhilippines although they considered it unneces-sary. They approved, also, of the amendmentproposed by the United States and accepted bythe sponsors.

The USSR draft resolution was supported bythe representatives of the Byelorussian SSR, Po-land, the Ukrainian SSR and Yugoslavia. They feltthat its implementation would safeguard the inde-pendent political, social and economic advance-ment of the Trust Territories. The representativeof Yugoslavia indicated that if this draft resolutionwere rejected he would vote for the joint draftresolution submitted by India and the Philippines.

Both the USSR draft resolution and the jointdraft resolution were supported by the representa-tives of Czechoslovakia, Guatemala and Mexico.The representative of Guatemala held that theargument that the USSR draft was inconsistentwith the Trusteeship Agreements was unconvinc-ing, since no General Assembly resolution couldalter or modify the provisions of a contractualagreement. His observations were endorsed bythe Mexican representative.

It was suggested by the representative of Czecho-slovakia that the two draft resolutions be merged.This proposal, however, did not meet with theapproval of the USSR representative.

Although approving in principle the USSRdraft resolution, the representative of Iraq statedhe would abstain from voting on it, as it did notseem to take into account certain stipulations ofthe Trusteeship Agreements authorizing the Ad-ministering Authorities to effect administrativeunions under certain conditions. A similar reser-vation was made by the representative of India.He felt that steps must be taken to ensure thatthe development of the Trust Territories was notretarded by administrative unions. There was noneed in the modern age to fear that AdministeringAuthorities would annex or absorb the Trust

Territories; but a watchful eye must always bekept on all constitutional, economic or administra-tive arrangements affecting them. The propergrowth of some of the Trust Territories could onlytake place in relation to their neighbours. If theywere to grow to full stature as viable politicalunits, they must do so as part of a larger whole.The representative of India stated, further, thatdevelopments in the Trust Territories should helpneighbouring Non-Self-Governing Territories togrow towards self-government or independence.

The representative of the USSR stated that hisGovernment realized that the existence of ad-ministrative unions was authorized by the Trustee-ship Agreements. He explained that the purposeof his draft resolution was to supervise the opera-tion of these unions to ensure that the status ofthe Trust Territories was not changed. He re-iterated that, in his opinion, the Trust Territorieswere in fact being absorbed by adjacent Non-Self-Governing Territories.

The representative of Brazil considered thatadministrative unions should not in any circum-stances be allowed to affect the separate and fulldevelopment of the Trust Territories towardstheir ultimate goal of self-government or inde-pendence; he therefore supported the joint draftresolution. He recalled, however, that the questionof administrative unions had been postponed fromthe fifth session of the Assembly and was beingdiscussed too late in the proceedings of the sixthsession to allow of its proper treatment. To ensurethat the question would be dealt with fully at thenext session, he therefore submitted an amend-ment (A/C.4/L.208) to the joint draft resolution,proposing that a committee on administrativeunions be established to meet three weeks beforethe seventh session of the Assembly in order tomake a preliminary examination of the specialreports prepared by the Trusteeship Council andto report thereon to the Assembly. Such a com-mittee, he suggested, should be composed of anequal number of Administering Authorities andnon-administering States.

In support of the Brazilian amendment, therepresentative of Cuba stated that the proposedcommittee would be able to make a constructivecontribution to the Assembly's understanding ofthe technical matters involved, and might enablethe Assembly to complete its examination of thequestion of administrative unions at its seventhsession. He observed that, although the questionof administrative unions was admittedly an intri-cate one, that was hardly justification for its being

780


relegated year after year to the end of the FourthCommittee's agenda. The sponsors of the jointdraft resolution and the representatives of Guate-mala, Iraq and Mexico, among others, also sup-ported the Brazilian amendment.

It was opposed, however, by the representativesof Australia, Belgium, France, the Netherlands,the United Kingdom and the United States, whostated that they would vote against the joint draftresolution if the Brazilian amendment was adopt-ed. The representatives of France and the UnitedKingdom further stated that their delegationswould be unable to serve on any such committee.It was explained by the representative of theUnited Kingdom that, at the time when the pro-posed committee would meet, his delegation wouldbe fully engaged with the Committee on Informa-tion from Non-Self-Governing Territories; itwould also be unable to provide the proposedcommittee with further information.

The various proposals were put to the voteat the 246th meeting of the Fourth Committeeon 14 January 1952. The USSR draft resolution(A/C.4/L.174) was rejected by 12 votes to 11,with 24 abstentions. The Brazilian amendment(A/C.4/L.208) to the joint draft resolution sub-mitted by India and the Philippines (A/C.4/-L.196) was adopted by a roll-call vote of 29 to10, with 8 abstentions, and the draft resolution, asthus amended by Brazil and the United States(see above), was adopted by a roll-call vote of33 to 7, with 7 abstentions.

The Chairman of the Fourth Committee pro-posed that the committee to be established underthe joint draft resolution as adopted should con-sist of four members. He suggested the appoint-ment of Brazil, Denmark, India and the Nether-lands. The representatives of Denmark and theNetherlands explained that their Governmentscould not agree to serve on the committee forvarious reasons, in particular because that organshould be composed of an equal number of Ad-ministering Authorities and non-administeringPowers;; their Governments did not administerany Trust Territories.

The Chairman then proposed, at the 248thmeeting on 15 January, that the committee shouldconsist of the representatives of India, Brazil, Bel-gium and the United States. This proposal wasapproved by the Fourth Committee.

During the consideration of the Fourth Com-mittee's report (A/2062) at the 361st plenarymeeting of the Assembly on 18 January 1952, therepresentative of the USSR reintroduced his draft

resolution (A/2063). The representatives of Po-land, the Ukrainian SSR and Czechoslovakiaspoke in favour of its adoption, again chargingthat administrative unions were, in practice, in-struments for annexing the Trust Territories inspite of the opposition of the indigenous popula-tions. The representative of Czechoslovakia statedthat nothing had been achieved since the adoptionof the first Assembly resolution on administrativeunions in 1948, but that, on the contrary, theposition of a number of Trust Territories hadbeen substantially worsened. He alleged that, inaddition to exploiting the Territories as cheapsources of important raw materials, the Adminis-tering Authorities were now incorporating themas strategic areas into the military plans of certainPowers which were preparing for a new worldwar. All three representatives maintained that theobjectives of the Trusteeship System could onlybe attained if the measures recommended by theUSSR draft resolution were adopted. They pointedto the vote on the USSR draft resolution in theFourth Committee as evidence that many delega-tions were concerned about the present develop-ment of the situation in the Trust Territories.

The United Kingdom representative stated thatthere was no truth whatsoever in the allegationsmade by these representatives. He maintained thatthe Trust Territories under United Kingdom ad-ministration were administered fully in accord-ance with the Trusteeship Agreements. Moreover,he pointed out that to establish in the Cameroonsand Togoland under British administration theseparate organs recommended by the USSR pro-posal would disrupt the manner in which thoseTerritories had been administered for 30 years,and would make it impossible for his Governmentto fulfil the terms of the Trusteeship Agreementsto administer the Territories as integral parts ofthe adjacent Territories.

It was decided that the USSR proposal wouldbe put to the vote after the draft resolution recom-mended by the Fourth Committee.

With respect to the latter resolution, the rep-resentative of France proposed to the sponsors thedeletion, in the first paragraph of the operativepart, of the clause "and in particular, questionsarising out of the membership of the Cameroonsand Togoland under French administration in theFrench Union". He explained that this proposaldid not mean that the French Government ob-jected to the consideration of the problem by theTrusteeship Council but was intended merely toavoid any confusion between the question of ad-


ministrative unions proper and the particularproblem meant by India and the Philippines, theoriginal sponsors of the draft resolution.

The representatives of India and the Philip-pines accepted this proposal.

At the request of the Dominican Republic,paragraph 4 of the draft resolution recommendedby the Fourth Committee was put to the voteseparately. It was adopted by 30 votes to 14, with11 abstentions. The draft resolution as a wholewas then adopted by 36 votes to 8, with 11 ab-stentions, as resolution 563(VI).

The USSR draft resolution proposing the es-tablishment in Trust Territories of legislative andadministrative organs not subordinate to organsestablished on the basis of administrative unions,was rejected by a roll-call vote of 16 to 13, with26 abstentions. The voting was as follows:

In favour: Burma, Byelorussian SSR, Czechoslovakia,Guatemala, Indonesia, Liberia, Mexico, Poland, Syria,Ukrainian SSR, USSR, Yemen, Yugoslavia.

Against: Australia, Belgium, Canada, Costa Rica,Denmark, France, Greece, Luxembourg, Netherlands,New Zealand, Norway, Sweden, Turkey, United King-dom, United States, Uruguay.

Abstaining: Afghanistan, Bolivia, Brazil, Chile, China,Cuba, Dominican Republic, Ecuador, Egypt, El Salvador,Ethiopia, Haiti, India, Iran, Iraq, Israel, Lebanon, Nica-ragua, Pakistan, Panama, Paraguay, Peru, Philippines,Saudi Arabia, Thailand, Venezuela.

Resolution 536(VI) read:'"The General Assembly,"Having by resolution 443(V) of 12 December 1950

decided to carry over the item relating to administrativeunions affecting Trust Territories for consideration atthe sixth session of the General Assembly,

"Recalling that by its resolution 224(III) of 18November 1948 the General Assembly recommendedthat the Trusteeship Council should investigate the

question of administrative unions in all its aspects, andthat by its resolution 326(IV) of 15 November 1949it recommended that the Trusteeship Council shouldcomplete its investigation,

"Recalling further that by resolution 326(IV) theGeneral Assembly noted that the Trusteeship Agree-ments do not authorize any form of political associationwhich would involve annexation of the Trust Territoriesin any sense, or would have the effect of extinguishingtheir status as Trust Territories, and affirmed the viewthat measures of customs, fiscal or administrative unionmust not in any way hamper the free evolution of eachTrust Territory towards self-government or independence,

"Having examined the reports of the TrusteeshipCouncil concerning administrative unions and the man-ner in which the Council has continued to observe thedevelopment of such unions;

"1. Notes that the Trusteeship Council has not as yetbeen able to examine fully all the aspects of administra-tive unions;

"2. Notes further that some of the recommendationsof the Council have not yet been fully implemented;

"3. Requests the Trusteeship Council, in order toenable the General Assembly to arrive at conclusionsconcerning existing administrative unions affecting TrustTerritories, to submit to the General Assembly, at itsseventh regular session, a special report containing acomplete analysis of each of the administrative unionsto which a Trust Territory is a party, and of the statusof the Cameroons and Togoland under French adminis-tration arising out of their membership in the FrenchUnion, with special reference to:

"(a) The considerations enumerated in paragraph 1of resolution 326(IV) of the General Assembly;

"(b) The compatibility of the arrangements alreadymade with the provisions of the Charter of the UnitedNations and the Trusteeship Agreement;

"4. Establishes a Committee on AdministrativeUnions, which shall meet three weeks before the nextregular session of the General Assembly, composed ofBelgium, Brazil, India and the United States of America,to make a preliminary examination of the special reportprepared by the Trusteeship Council and to present itsobservations thereon to the General Assembly at itsseventh regular session."

J. RURAL ECONOMIC DEVELOPMENT OF TRUST TERRITORIES

By resolution 438(V)9 6 of 2 December 1950,the General Assembly, recognizing that equitabledistribution and proper utilization of land con-stituted one of the essential conditions of eco-nomic and social advancement, recommended thatthe Trusteeship Council study the prevailing poli-cies, laws and practices which in the Trust Terri-tories related to land, land utilization and thealienation of land. The Council was recommendedto take into account the present and future needsof the indigenous inhabitants from the standpointof the basic objectives of the Trusteeship Systemand the future requirements of Trust Territories,

as well as the social and economic consequencesof the transfer of land to non-indigenous inhabit-ants. The Assembly further recommended that theCouncil make such recommendations to the Ad-ministering Authorities as might be conducive tothe economic and social development of the in-digenous inhabitants and as it might see fit tomake in the light of its study. It was requestedto report to the Assembly's sixth session.

During its eighth session, the Trusteeship Coun-cil, in resolution 305(VIII), adopted at its 318th

96 See Y.U.N., 1950, pp. 791-92.


meeting on 2 February 1951, established a Com-mittee on Rural Economic Development of theTrust Territories. The Committee, with terms ofreference based on the Assembly resolution, wascomposed of China, the Dominican Republic,France, Thailand, the United Kingdom and theUnited States. It was authorized to obtain anyinformation it might require from the Adminis-tering Authorities or other sources and, to thatend, the Trusteeship Council requested the Ad-ministering Authorities to co-operate with theCommittee whenever necessary. A progress reportfrom the Committee was requested by the Councilbefore the end of its ninth session.

The Committee on Rural Economic Develop-ment of the Trust Territories held its first meetingon 13 March 1951, and on 19 June submitted aprogress report (T/926) to the Trusteeship Coun-cil.

In its report, the Committee stated that in car-rying out the task assigned to it by the Council,the Committee decided that it must first establishthe facts about land tenure, including the aliena-tion of land, and subsequently analyse these factsin the context of land utilization policies. It there-fore requested from the Administering Authori-ties information on:

(1) legislative bills and discussions on proposedlegislation relating to land tenure in the Trust Terri-tories;

(2) customary forms of land tenure, including landalienation, and changes in these customary forms underthe impact of modern conditions; and

(3) current policy and practice relating to land andthe alienation of land to non-indigenous inhabitants inrelation to the economic development of the TrustTerritories.

At the same time, the Committee asked theSecretariat, inter alia, to prepare summaries of ex-isting legislation in the Trust Territories relatingto land and the alienation of land.

After considering the various documents beforeit, the Committee requested the AdministeringAuthorities to transmit the following supplemen-tary information on each Trust Territory:

(1) present distribution of land by category (e.g.,under cultivation, pastoral, mining and forest) andamount and geographical distribution of such land heldby indigenous and non-indigenous inhabitants, includingthe type of tenure or right (e.g., customary, freehold,leasehold) under which such land is held;

(2) geographical distribution of population in theTrust Territories, distinguishing between indigenous andnon-indigenous inhabitants;

(3) history of land alienation, tracing the record ofland alienation under the former German (or Japanese)

administration and the changes made in respect to suchalienations under the present administration.

In addition, each Administering Authority wasasked the following question:

"What considerations arise from land utilization poli-cies in the Trust Territories as promoted by your Govern-ment as Administering Authority which affect policyregarding ownership and alienation of land?"

In order to assemble the information thus ob-tained in comparable form for each Trust Terri-tory, the Committee invited the Secretariat toprepare memoranda designed to show the distri-bution of population and categories of land in theTrust Territories, the amount of land in each cat-egory held by indigenous and non-indigenous in-habitants, and the form of tenure under whichsuch land was held, including statements on theland legislation or customary law applicable toeach form of land right.

The Committee reported that it had made use-ful progress in the first phase of its study—theestablishment of the facts. It would thereafter pro-ceed to establish the existing situation, examinethe implications against the background of landutilization policies and analyse the opportunitiesfor and obstacles to progress, so that recommen-dations might be made looking to the most bene-ficial use of the land from the standpoint of thebasic objectives of the International TrusteeshipSystem. It stated further that it would report tothe Trusteeship Council at its tenth session.

During its ninth session, the Trusteeship Coun-cil, at its 366th meeting, on 5 July 1951, tooknote of the Committee's progress report.

At the sixth session of the General Assemblythe Fourth Committee considered the question ofrural economic development of the Trust Terri-tories at its 242nd meeting on 10 January 1952.

At that meeting, Burma, India, Syria andYemen introduced a joint draft resolution (A/-C.4/L.167) recommending that the General As-sembly:

(1) impress upon the Trusteeship Council theimportance and urgency of this study; and

(2) recommend that the Trusteeship Councilinvite the appropriate specialized agencies, par-ticularly the Food and Agriculture Organization(FAO), as well as other experts if necessary, toassist it in its study on the rural economic devel-opment of the Trust Territories.

The representative of Syria explained that theearliest and latest stages of the work of the Com-mittee on Rural Economic Development wouldbe carried out by the present members, but for


the intermediate stage—the analysis of the situ-ation in the Trust Territories—he felt that tech-nical experts would be needed, and it was forthat reason that he had joined with the represent-atives of Burma, India and Yemen in submittingthe joint draft resolution.

The sponsors of the joint draft accepted thefollowing oral amendments:

(1) By Guatemala, to include in the last paragraphthe words "and the International Labour Organisation".

(2 ) By the Dominican Republic, to delete that partof the joint draft referring to the importance andurgency of the study to be prepared by the Committeeon Rural Economic Development. It was stated that thispart of the joint draft was superfluous in as much asthe Trusteeship Council fully realized the importance andurgency of the matter, as was shown by the fact thatit had set up a Committee to study the problem.

(3) By the United States, to replace the word "invite"in the last paragraph by the words "consider inviting".It was explained that that would give the TrusteeshipCouncil and its Committee on Rural Economic Develop-ment freedom to determine which specialized agencies itwould ask for assistance and when it would do so.

The joint draft resolution, as amended, wasadopted unanimously by 41 votes to none, withno abstentions, by the Fourth Committee. On theCommittee's recommendation (A/2058) it wasadopted by the General Assembly at its 361stplenary meeting on 18 January, without discussion,and without objection, as resolution 561(VI).It read:

"The General Assembly,

"Noting the action taken by the Trusteeship Councilin respect of General Assembly resolution 438(V) of2 December 1950 on the rural economic developmentof the Trust Territories,

"Noting, in particular, the complex and exacting tech-nical nature of the study in question,

"Recommends that the Trusteeship Council considerinviting the appropriate specialized agencies, particularlythe Food and Agriculture Organization of the UnitedNations and the International Labour Organisation, aswell as other experts if necessary, to assist it in its studyon the rural economic development of the Trust Terri-tories."

K. ABOLITION OF CORPORAL PUNISHMENT IN TRUST TERRITORIES

In accordance with General Assembly resolu-tion 440(V),97 the question of the abolition ofcorporal punishment in Trust Territories was con-sidered by the Assembly at its sixth session, at the243rd and 244th meetings of the Fourth Com-mittee on 11 January 1952.

The Fourth Committee had before it a memo-randum (A/1965) from the United Kingdomand two draft resolutions, one submitted jointlyby Brazil and France (A/C.4/L.162) and theother by the Dominican Republic (A/C.4/L.172).

The memorandum (A/1965) described thesteps taken by the United Kingdom to abolishcorporal punishment in the Territories under itsadministration, referring for further details to an-nual reports on the Territories for 1950.

In Togoland, a Bill had been introduced abol-ishing corporal punishment of adults as a sentenceof the courts with one exception, housebreakingand burglary when in possession of a dangerousweapon, which the members of the Legislaturehad wished to retain. Corporal punishment wasalso retained for prison offences: mutiny, incite-ment to mutiny, gross personal violence to an of-ficer or servant of the prison or to a fellowprisoner. No sentence, however, could be carriedout without the approval of the Governor inCouncil. It was also considered that corporal pun-ishment of juveniles was, for the time being, more

desirable than the alternative of imprisonment,particularly in the absence of a fully effective pro-bationary system.

In the Cameroons, the memorandum stated, cer-tain steps were envisaged, such as the repeal ofa section of the Criminal Procedure Ordinanceand it was hoped to abolish corporal punishmentin that Territory as soon as possible. In the caseof prison offences, corporal punishment might beawarded for mutiny, incitement to mutiny or vio-lence to a prison officer.

In Tanganyika, Bills had been introduced whichwould reduce by more than half the number ofoffences for which corporal punishment could beawarded.

The joint draft resolution (A/C.4/L.162) byBrazil and France recommended that the GeneralAssembly should:

(1) note that measures had been taken to reduce thenumber of offences in respect of which the penalty ofcorporal punishment was applied;

( 2 ) note the arguments presented by the Adminis-tering Authorities concerned to explain why this penaltyhad not yet completely disappeared;

(3) express the opinion that these considerationsshould not prevent the complete abolition of corporalpunishment in the Trust Territories where it still existed;and

See Y.U.N., 1950, p. 791.97


(4) earnestly repeat its previous recommendationsand urge the Administering Authorities concerned tocomply with them without delay.

The draft resolution (A/C.4/L.172) by theDominican Republic recommended that the Gen-eral Assembly should:

(1) express the opinion that, although in some casesmeasures had been taken to reduce the number ofoffences in respect of which corporal punishment couldbe awarded and that in other cases the number oflashes had been reduced, effect had not yet been givento the recommendations of the General Assembly regard-ing the complete abolition of corporal punishment;

(2) urge that corporal punishment should be com-pletely abolished as a disciplinary punishment in allprisons of the Trust Territories where it still existed;

(3) express the opinion that the Administering Au-thorities should accelerate the implementation of thelegislation with a view to replacing whipping in all casesby repressive methods of modern penology, since therecould be no justification for the retention of corporalpunishment even in a limited or restricted form in casesestablished by law;

(4) endorse and reaffirm its previous recommenda-tions and urge the Administering Authorities to givethem consideration and to put them into effect withoutdelay; and

(5) recommend that the Trusteeship Council con-tinue to keep the question under consideration pendingits final solution in accordance with the Assembly'sresolutions.

At the 243rd meeting of the Fourth Commit-tee, the representative of the Dominican Republicwithdrew his draft resolution (A/C.4/L.172) andintroduced an amendment (A/C.4/L.199) to thejoint draft resolution (A/C.4/L.162) submittedby Brazil and France.

The amendment would insert in the preambleto the draft resolution two paragraphs from thedraft of the Dominican Republic:

(1) to state that no distinction had been made inAssembly resolution 440(V) between the Native andTerritorial judicial authorities empowered to awardcorporal punishment;

(2) to note the measures taken by the TrusteeshipCouncil as well as those taken by the AdministeringAuthorities.

It would replace the first three paragraphs ofthe operative part of the joint draft by the firstoperative paragraph of the Dominican Republicdraft.

The representative of the Dominican Republic,in introducing the amendment, stated that thefirst operative paragraph of his draft expressedin a more precise manner the ideas contained inthe first three paragraphs of the joint draft; italso stated that no effect had yet been given tothe Assembly's recommendations for the completeabolition of corporal punishment.

The amendment of the Dominican Republicwould also insert in the joint draft resolution thesecond, third and fifth paragraphs of the Domini-can Republic draft. These paragraphs would rec-ommend:

(1) the complete abolition of corporal punishmentin prisons;

(2) that the Administering Authorities accelerate thestudy of new legislation with a view to replacing cor-poral punishment by penalties of a more modern type;and

(3) that the Trusteeship Council continue to keep thequestion under consideration.

The sponsors of the joint draft resolution (A/-C.4/L.162) stated that corporal punishment wasa survival of a policy condemned by the con-science of mankind. It degraded the man whoimposed it even more than the victim. It wasshameful and disappointing that, in 1951, in thename of the civilization of the white race, Afri-cans should be treated as beasts of burden whenthey were obedient and useful and as wild beastswhen they rebelled. The joint draft, they ex-plained, was both comprehensive and clear, sinceit covered every aspect of the problem and un-ambiguously expressed the common desire thatcorporal punishment should be abolished withoutdelay. Nevertheless, while it was uncompromisingwith regard to respect for the basic principle, itdeliberately abstained from expressing criticismof any kind and should consequently be acceptableto every member of the Fourth Committee.

The representatives of Chile, China, Cuba,Guatemala, Iraq, Uruguay and Venezuela sup-ported the joint draft resolution. Those repre-sentatives considered that the imposition of cor-poral punishment was quite incompatible withthe obligations undertaken by the AdministeringAuthorities under the Charter and the UniversalDeclaration of Human Rights. Furthermore, theAdministering Authorities had been urged bothby the General Assembly and by the TrusteeshipCouncil to abolish corporal punishment immedi-ately. In the opinion of those representatives, thevery fact of condemning a man to corporal pun-ishment was a crime against humanity. The prac-tice should therefore be abolished without furtherdelay, whatever the crime. At the stage reached inthe development of international law, it was in-admissible that certain countries should still havelegislation authorizing that type of punishment.

The representatives of Belgium and the UnitedKingdom declared they would abstain in the voteon the joint draft. The representative of Belgiumsaid that in Ruanda-Urundi corporal punishment


was used only as a disciplinary measure in prisons.Belgium did not at all favour such punishmentbut had realized that certain disadvantages wouldresult from its immediate abolition in a Territorywhere corporal punishment had been prescribedby custom, and which was in the process of evolv-ing towards a penitentiary system organized onmodern lines. The possibility might be consid-ered, he said, of replacing the system in force bysuch punishments as solitary confinement or con-finement to a dark cell. Solitary confinement, how-ever, might prove difficult in a penitentiary sys-tem that was in process of change, and confine-ment to a dark cell was bound to be harmful tothose condemned to it. Thus Belgium feared thatthe abolition of the regulations in force withoutadequate preparation might lead to abuses in thepenitentiary establishments for which it was re-sponsible. Belgium thought that the Administer-ing Authorities should have the right to interpretthe General Assembly's resolutions in this respectin the light of individual cases.

The representative of the United Kingdom saidthat in the Territories administered by his Gov-ernment, preparations were being made for theestablishment of probation systems. Also, as aresult of the educative influence of social welfarecentres and community development projects,there had been a progressive reduction in thenumber of offences for which corporal punish-ment could be awarded. In the specific case ofTanganyika, the Administering Authority hadreluctantly decided that the abolition of corporalpunishment for cattle theft would be so far inadvance of African public opinion as to create alack of confidence in the courts, and might leadthe victims to seek their own redress outside thelaw; such abolition would have to be precededby the education of public opinion. He depre-cated any tendency to regard the question of theabolition of corporal punishment as controversial.On the contrary, the United Kingdom would wel-come suggestions from other members of theFourth Committee as to steps which might betaken to solve the difficulties encountered. HisGovernment, he said, would be interested to know,for example, what alternative punishments wereawarded by countries which had already abolishedcorporal punishment.

The representative of Australia informed theFourth Committee that, in implementing Gen-eral Assembly resolution 440(V) (which recom-mended the complete abolition of corporal pun-ishment in all Trust Territories where it existed),

his Government had decided that legislationshould be introduced eliminating some provisionsnow authorizing corporal punishment and modi-fying others. The Trusteeship Council would benotified of the steps taken. In any case, he empha-sized, corporal punishment had not been admin-istered since before the Second World War.

The representatives of Chile and Venezuela,among others, stated that they were prepared tovote for both the Dominican Republic amend-ment and the joint draft resolution. The repre-sentative of Venezuela suggested that the spon-sors of the texts before the Committee mightusefully meet with other members of the Com-mittee to see whether a single text could beworked out. This proposal was supported by therepresentatives of Brazil and the Dominican Re-public, and, at the 243rd meeting, the Chairmanof the Fourth Committee appointed a sub-com-mittee, composed of Brazil, the Dominican Re-public, France, Iraq, the Philippines and Vene-zuela, to endeavour to co-ordinate the texts of thedraft resolutions and the amendment submitted.

The Sub-Committee held one meeting, and pre-sented a joint draft resolution (A/C.4/L.200)which was adopted by the Fourth Committee atthe 244th meeting on 11 January 1952, first inparts and then as a whole (for text see below).The joint draft resolution of Brazil and France(A/C.4/L.162) and the amendment of the Do-minican Republic (A/C.4/L.199) were with-drawn. Paragraph 4 of the Sub-Committee's draftwas adopted by a roll-call vote of 46 to 2, with2 abstentions. The preamble and paragraphs 1,2, 3, 5 and 6 were adopted by 45 votes to none,with 5 abstentions. The joint draft resolution, asa whole, was adopted by a roll-call vote of 45 tonone, with 5 abstentions.

The representative of New Zealand said thatalthough there was no corporal punishment inWestern Samoa which was under the administra-tion of New Zealand, his delegation had abstainedfrom voting on the draft resolution because itwas not clear as to the meaning of the fifth para-graph.

The representative of Belgium said that hisdelegation reserved its position on the resolution,as it felt that the recommendations could not beput into effect immediately.

The General Assembly at its 361st plenarymeeting on 18 January 1952 adopted the draftresolution proposed by the Fourth Committee(A/2060) without discussion, by 48 votes to


none, with 4 abstentions, as resolution 562(VI).It read:

"The General Assembly,"Recalling its resolution 440(V) of 2 December 1950

in which it recommended that measures should be takenimmediately to bring about the complete abolition ofcorporal punishment in all Trust Territories where itstill existed,

"Considering that the said resolution does not estab-lish any distinction between the native and territorialjudicial authorities which are empowered, by law or bycustom, to award such punishment,

"Having noted the reports submitted in pursuance ofthe said resolution by the Administering Authoritiesconcerned,

"1. Notes that measures have been taken to reducethe number of offences in respect of which the penaltyis applied;

"2. Notes the arguments presented by the Adminis-tering Authorities concerned to explain why this pen-alty has not yet completely disappeared;

"3. Is of the opinion nevertheless that these con-siderations should not prevent the complete abolitionof corporal punishment in the Trust Territories whereit still exists;

"4. Urges that corporal punishment (by whip, caneor any other means) should be completely abolished asa disciplinary punishment in all prisons of the TrustTerritories where it still exists;

"5. Recommends that Administering Authoritiesshould enforce immediately legislation with a view toreplacing corporal punishment in all cases by methodsof modern penology;

"6. Repeats its previous recommendations and urgesthe Administering Authorities concerned to comply withthem without delay."

L. EDUCATIONAL ADVANCEMENT IN TRUST TERRITORIES

At its fifth session, the General Assembly, inresolution 437(V),98 recommended that the Trus-teeship Council continue to devote particular at-tention, in consultation with the AdministeringAuthorities and the specialized agencies, to long-range programmes of educational development inthe Trust Territories, with a view to enabling theinhabitants of those Territories to take over theresponsibilities of complete self-government at theearliest possible date. The Assembly also requestedthe Trusteeship Council to include in its annualreports to the General Assembly its observationson the various long-range educational programmesundertaken in the Trust Territories, and the prog-ress made in this request.

The resolution was considered by the Trustee-ship Council at its eighth session, at its 317thmeeting on 1 February 1951, when the Councildecided to note the resolution, with the intentionof being guided by it in its future work.

At its eighth session, the Trusteeship Councilat its 320th meeting on 7 February 1951 decidedto take note of Economic and Social Council res-olution 314(XI) on higher education in the TrustTerritories in Africa. By this resolution, the Eco-nomic and Social Council invited the Administer-ing Authorities having need of technical assist-ance for the educational advancement of the Af-rican Trust Territories to submit their requests tothe appropriate organizations.

At its ninth session, the Trusteeship Council,at its 347th meeting on 6 June 1951, took noteof the fact that no requests for technical assistancefor the education of Africans in Trust Territories

had yet been received by the Technical AssistanceBoard in response to the invitation issued to theAdministering Authorities, and recommended thatthose Authorities take full advantage of the fa-cilities offered under the expanded programmeof technical assistance.

That part of the report of the TrusteeshipCouncil (A/1856) referring to the Council'sdecision to note Assembly resolution 437(V) wasconsidered by the Assembly's Fourth Committeeat its 236th meeting on 3 January 1952.

India submitted a draft resolution (A/C.4/-L.173) recommending that the General Assembly:

(1) invite Member States of the United Nations tomake available to qualified students from Trust Terri-tories, fellowships, scholarships and internships and tonotify the Trusteeship Council concerning the availabilityof such fellowships, scholarships or internships in publicas well as private institutions;

(2) invite the Council to request the Secretary-General, having in mind the procedures of the expandedprogramme of technical assistance and the machinery ofthe Technical Assistance Administration, to make sucharrangements as may be necessary to ensure the efficientadministration of all offers of scholarships, fellowshipsand internships for inhabitants of Trust Territories thatmay be made;

(3) request the Council further to invite the Admin-istering Authorities concerned to avail themselves of suchscholarships, fellowships and internships, in accordancewith the procedures to be devised, and to give fullpublicity with regard to such fellowships, scholarships,and internships in their respective Trust Territories;

(4) invite the United Nations Educational, Scientificand Cultural Organization (UNESCO) to give all ap-

98 See Y.U.N., 1950, p. 792.


propriate assistance in the implementation of the resolu-tion; and

(5) request the Council to report with regard tothese matters to the next regular session of the GeneralAssembly.

Introducing the draft resolution, the represent-ative of India stressed the value of offering schol-arships to students in Trust Territories in orderto fit them to play responsible parts on their re-turn home. Students who spent some time incountries other than their own would receive anobject lesson in political methods which wouldenable them to form groups of leaders fitted totake over control of affairs in the Trust Terri-tories when the time came. They would also haveopportunities of contrasting methods of educa-tion, sanitation and political administration withthose in their own countries and would thus beable to make constructive suggestions for im-provement.

It was essential to go foward with the develop-ment of the Trust Territories, and the offer ofscholarships would be a striking example of theUnited Nations concern for the welfare of thepeople in those Territories, he said.

Support for the draft resolution was expressedby the representatives of Iraq, the United Statesand Yugoslavia. Other representatives, amongthem those of Belgium, Brazil, Canada and theUnited Kingdom, while agreeing with the princi-ples contained in the draft resolution, felt, how-ever, that the matter was one which concernedthe over-all question of technical assistance. Inreply, the representatives of India and Iraq emph-asized that the draft resolution would merely in-vite those Member States who were willing todo so to offer, at their own expense, scholarshipsto students from the Trust Territories.

The draft resolution (A/C.4/L.173) wasadopted by the Committee, by a roll-call vote of39 to none, with 8 abstentions.

On the Committee's recommendation (A/-2061), it was adopted by the General Assembly,without discussion, at its 361st plenary meeting

on 18 January 1952, by 47 votes to none, with8 abstentions, as resolution 557(VI). It read:


"Recognizing that the speedy educational advancementof the inhabitants of Trust Territories is essential forthe attainment of the objectives of the InternationalTrusteeship System,

"Recognizing that the United Nations has a specialresponsibility towards the inhabitants of the Territoriesunder the International Trusteeship System,

"Desirous of giving all possible assistance to the edu-cational advancement of the inhabitants of these Terri-tories,

"Recalling that, by resolution 110(V) of 19 July1949, the Trusteeship Council urged that all possiblesteps be taken to make available to qualified studentsfrom Trust Territories fellowships, scholarships andinternships which have been or may be established bythe United Nations or by its specialized agencies, andrecalling that by the same resolution the Council invitedthe Administering Authorities to give full publicitywith regard to all fellowships, scholarships and intern-ships available to the inhabitants of Trust Territories,

"1. Invites Member States of the United Nations tomake available, to qualified students from Trust Terri-tories, fellowships, scholarships and internships, and tonotify the Trusteeship Council concerning the availa-bility of such fellowships, scholarships and internshipsin public as well as private institutions;

"2. Invites the Trusteeship Council to request theSecretary-General, having in mind the procedures ofthe Expanded Programme of Technical Assistance andthe machinery of the Technical Assistance Administra-tion, to make such arrangements as may be necessaryto ensure the efficient administration of all offers ofscholarships, fellowships and internships for inhabitantsof Trust Territories that may be made;

"3. Requests further that the Trusteeship Councilinvite the Administering Authorities concerned to availthemselves of such scholarships, fellowships and intern-ships in accordance with procedure to be devised andgive full publicity with regard to such fellowships,scholarships and internships in their respective TrustTerritories;

"4. Invites the United Nations Educational, Scien-tific and Cultural Organization to give all appropriateassistance in the implementation of the present reso-lution;

"5. Requests the Trusteeship Council to report withregard to these matters to the General Assembly at itsnext regular session."

M. DISSEMINATION OF INFORMATION ON THE UNITED NATIONSAND THE INTERNATIONAL TRUSTEESHIP SYSTEM

IN TRUST TERRITORIESUnder Trusteeship Council resolution 36(III)

of 8 July 1948 on the provision of informationabout the United Nations to the peoples of TrustTerritories," the Administering Authorities wererequested to supply the names and addresses of

officials to whom such information should be sent.They were asked at the same time to furnishsuggestions as to appropriate channels through

99 See Y.U.N., 1947-48, pp. 733-34.


which information about the aims and activitiesof the United Nations might be communicated tothe general public.

In a report on the implementation of this reso-lution (T/824), the Secretary-General listed thenumber of copies of official records of the Trus-teeship Council being sent to addressees in theTrust Territories. While stating that no specificsuggestions as to appropriate channels had beenreceived, the Secretary-General reported that therehad been constant co-operation between himselfand the Administering Authorities to ensure thatthe Trust Territories were supplied with the mostsuitable material available concerning the aimsand activities of the United Nations. The reportnoted the steps taken in various Trust Territoriesto provide information to the general public andthe material prepared by the United Nations De-partment of Public Information and sent to TrustTerritories.

After considering the Secretary-General's reportat its 320th meeting on 7 February 1951, theCouncil adopted a resolution (311(VIII) ) in-structing future visiting missions to make thenecessary contacts to ensure the distribution ofdocuments containing information about theUnited Nations and to ascertain the most suitableform for such documents so that they mightreach the widest possible public in the TrustTerritories.

At the same meeting, the Trusteeship Councildecided to refer to the Administering Authoritiesa resolution (314(XI) ) adopted by the Eco-nomic and Social Council on 24 July 1950 onthe teaching of the purposes and principles, the

structure and activities of the United Nations andthe specialized agencies in schools and other ed-ucational institutions. The Trusteeship Councilasked the Administering Authorities to includein their annual reports information on the imple-mentation of this resolution.

The Fourth Committee of the General Assem-bly, at its 236th meeting on 3 January 1952, alsoconsidered a draft resolution proposed by Syria(A/C.4/L.170) concerning the dissemination ofinformation on the United Nations and the Trus-teeship System in Trust Territories. This resolu-tion was unanimously adopted by the FourthCommittee, with a few drafting changes, and wasadopted, without discussion or vote, by the As-sembly, at its 361st plenary meeting on 18 January1952.

The resolution (556(VI) ) read:


"Considering that it is essential that the peoples ofTrust Territories should receive adequate informationconcerning the purposes and operation of the UnitedNations and of the International Trusteeship Systemin particular,

"Noting that the Trusteeship Council has instructedthe visiting missions to investigate on the spot the bestmeans of disseminating such information,

"1. Recommends that the Administering Authoritiesof Trust Territories take all appropriate steps to dis-seminate information on the United Nations, and onthe International Trusteeship System in particular, amongthe population and in the schools, and report to theSecretary-General details of such steps;

"2. Recommends that the Trusteeship Council includein its annual reports to the General Assembly allparticulars supplied on the subject, together with itsremarks."

N. PARTICIPATION OF THE INDIGENOUS INHABITANTS OF THETRUST TERRITORIES IN THE WORK OF THE TRUSTEESHIP COUNCIL

At the sixth session of the General AssemblyCuba, Ecuador, Egypt and India submitted to theFourth Committee a joint draft resolution (A/-C.4/L.175) recommending that the TrusteeshipCouncil consider and report on means of associat-ing the representatives of the indigenous inhabit-ants of Trust Territories in its work, in particularin the examination of the annual reports.

This draft resolution was considered at the237th meeting of the Fourth Committee on 4January 1952. In introducing it, the representa-tive of Cuba recalled that the Fourth Committeehad already approved a similar resolution invitingthe Committee on Information from Non-Self-

Governing Territories to study the possibility ofassociating the latter Territories in its work.100

With respect to Trust Territories, he consideredthat the provisions of Article 76b of the Char-ter101 favoured such a procedure, particularly sincethe Council's rules of procedure allowed the Ad-ministering Authorities to appoint special repre-sentatives who could participate in the Council'sdiscussions without the right to vote. This privi-lege, he felt, should be granted to both sides, sothat the Council might be informed of the opin-ion of the peoples administered as well as of the

100 See pp. 628-29.101 See p. 83.


administrators. He suggested that the representa-tives of the indigenous inhabitants could in gen-eral be appointed by existing electoral collegesor similar bodies in the Trust Territories andshould have the same status in the TrusteeshipCouncil as the special representatives of the Ad-ministering Authorities. The participation of theindigenous populations in the Council would alsohave the advantage of preparing them to assumetheir responsibilities at the international level,which, he stated, was the basic purpose of the In-ternational Trusteeship System and should be safe-guarded by the Fourth Committee. He alsopointed out that this procedure would not createa precedent, as Non-Self-Governing and TrustTerritories already participated as associate mem-bers without the right to vote in the United Na-tions regional commissions and some of the spe-cialized agencies, and even as members with fullrights in certain of these agencies.

The draft resolution was opposed by the repre-sentatives of Australia, Belgium, France and theUnited Kingdom. The representative of Belgiumstated that, in the regional commissions and theother international organizations referred to by theCuban representative, the Trust Territories andtheir inhabitants were represented as a singlelegal entity by the Authorities which had as-sumed the responsibility of Trusteeship, whereasthe joint draft resolution sought to admit repre-sentatives of the peoples of the Territories, as dis-tinct from their Governments, to associate mem-bership in the Trusteeship Council. The adoptionof such a proposal, he felt, would create a danger-ous precedent, which might well give rise to thepresence of a representative of the people of acountry by the side of that country's governmentalrepresentative in any organ of the United Na-tions.

It was pointed out by the representative of theUnited Kingdom that the joint draft resolutionwas quite different from that approved by theFourth Committee and supported by his delega-tion with respect to Non-Self-Governing Terri-tories. The draft resolution under discussion re-lated to the Trusteeship Council, the functions andresponsibilities of which were defined in theCharter and to which the Administering Authori-ties had to account for their actions. It was in-tended to associate in the Council's work personsholding opinions which differed from those ofthe Administering Authority, although such per-sons were already enabled to express their viewsthrough petitions and to visiting missions. More-

over, he considered that the proposed resolutionwould, if adopted, give rise to considerable prac-tical difficulties, the chief of which, in view of thenumber of divergent races and tribes in some ofthe Territories, would be the choice of the repre-sentatives of the indigenous peoples.

The arguments advanced by the representativesof Belgium and the United Kingdom were en-dorsed by the representative of France, who addedthat the draft resolution would also have the effectof modifying the Charter, since neither the Char-ter nor the Trusteeship Agreements provided forassociate members of the Trusteeship Council.

The representative of Australia raised anotherpoint of difference between the resolution alreadyapproved by the Fourth Committee and the oneunder consideration. The former, he pointed out,referred to the association of the Non-Self-Gov-erning Territories themselves, whereas the latterreferred to the association of representatives ofthe indigenous inhabitants of the Trust Territories.Adding that the draft resolution contemplated thatthese representatives would express an independ-ent point of view which might be at variancewith that of the representatives of the Adminis-tering Authorities, he urged that the Fourth Com-mittee take no action which might, even hypo-thetically, deprive the Administering Authoritiesof authority or lessen the confidence placed inthem by the indigenous inhabitants.

The representative of Denmark stated that thedraft resolution, to which he had been favourablydisposed, would, by asking the Council to con-sider means of associating the representatives ofthe indigenous inhabitants in the Council's work,unduly restrict the freedom of action of the Coun-cil and prevent the problem from being ap-proached without imposed preconceptions. Hetherefore thought it preferable to repeat the word-ing used in the resolution relating to Non-Self-Governing Territories. Accordingly, jointly withthe representative of Norway, he introduced anamendment (A/C.4/L.185) inviting the Councilto examine and report to the Assembly on thepossibility of associating the Trust Territoriesmore closely in its work. The addition of thewords "inhabitants of the" before "Trust Terri-tories" was proposed by India and Cuba and ac-cepted by Denmark and Norway, and, thus al-tered, the amendment was also accepted by all thesponsors of the joint draft resolution.

The representative of the United States sup-ported the draft resolution as amended. He feltthat it expressed the Assembly's wish that the in-


habitants of the Trust Territories should be moreclosely associated in the Council's work and atthe same time did not restrict the Council's rightto seek any practical means of attaining that ob-jective.

The representatives of Australia, Belgium andthe United Kingdom again opposed the amendeddraft resolution, stating that they would, however,have accepted the original Danish-Norwegianamendment if it had been put to the vote sep-arately.

The draft resolution, as amended, was adoptedby the Fourth Committee on 4 January 1952 bya roll-call vote of 33 to 4, with 4 abstentions(A/2061).

The Assembly, without further discussion, alsoadopted the draft resolution without change at its361st plenary meeting on 18 January 1952, by41 votes to 5, with 5 abstentions, as resolution554(VI). It read:

"The General Assembly.

"Considering that point 9 of the Secretary-General's'Memorandum of points for consideration in the de-velopment of a twenty-year programme for achievingpeace through the United Nations' advocates the useof the United Nations to promote by peaceful means theprogress of dependent, colonial or semi-colonial peoplesto a position of equality with Member States of theUnited Nations,

"Considering that resolution 494(V) adopted by theGeneral Assembly on 20 November 1950 requests theappropriate organs of the United Nations to consider

those portions of the Secretary-General's memorandumwith which they are particularly concerned,

"Considering that, under Article 76 b of the Charter,the basic objectives of the International TrusteeshipSystem are to promote the political, economic, socialand educational advancement of the inhabitants of theTrust Territories, and their progressive developmenttowards self-government or independence as may beappropriate to the particular circumstances of eachTerritory and its peoples and the freely expressed wishesof the peoples concerned, and as may be provided bythe terms of each trusteeship agreement,

"Considering that the General Assembly on 18 Janu-ary 1952 adopted a resolution on the participation ofNon-Self-Governing Territories in the work of theCommittee on Information from Non-Self-GoverningTerritories,

"Considering that the direct association of the indi-genous inhabitants of the Trust Territories in the workof the United Nations and of the specialized agenciesis an effective measure of promoting the progress ofthe indigenous inhabitants of those territories towardsa position of equality with Member States of theUnited Nations,

"1. Notes that special provisions exist in the constitu-tions of some of the specialized agencies and of theregional commissions of the United Nations permitting,on the proposal of the Administering Member con-cerned, the admission to those agencies and commissionsof Non-Self-Governing and Trust Territories as 'associatemembers';

"2. Commends the practice referred to in the pre-ceding paragraph;

"3. Invites the Trusteeship Council to examine thepossibility' of associating the inhabitants of the TrustTerritories more closely in its work and to report theresults of its examination of this problem to the GeneralAssembly at its seventh regular session."

ANNEX. PETITIONS EXAMINED BY THE TRUSTEESHIP COUNCILDURING 1951

The Trusteeship Council examined and took actionon 199 petitions during 1951 and postponed to a latersession nineteen petitions which had not been receivedwithin the time limit prescribed by its rules of pro-cedure. The Council's Ad Hoc Committee on Petitionsundertook a preliminary examination of all petitions,with the exception of petitions or parts of petitionsrelating to the Ewe and Togoland unification question,which were examined in the full Council.

The Ad Hoc Committee appointed by the Councilat its eighth session was composed of Belgium (Chair-man), China, the Dominican Republic, France, theUSSR and the United Kingdom. The Ad Hoc Com-mittee established at the ninth session was composed ofThailand (Chairman), Argentina, Belgium, New Zea-land, the USSR and the United States.

The Ad Hoc Committee submitted six reports to theCouncil at its eighth session and nine at its ninth sessionon the petitions examined. These reports contained:

(1) summaries of the petitions; (2) summaries of theobservations of the Administering Authorities con-cerned; (3) document references to these observationsand to the Ad Hoc Committee meetings during whichthe relevant petitions were discussed; and (4) draftresolutions recommended for adoption by the Council.

All these resolutions, some with amendments, wereadopted by the Council on the following dates: 312(VIII) on 1 March, 313(VIII)-319(VIII) on 13March, 320(VIII)-340(VIII) on 15 March, during theeighth session; 348(IX)-376(IX) on 2 July, 377( IX) -380(IX) on 5 July, 381-383 (IX) on 17 July, 384(IX)-396(IX) on 26 July, 397(IX)-413(IX) on 27 Julyand 414(IX)-419(IX) on 30 July, during the ninthsession.

The representative of the USSR explained in theAd Hoc Committee on Petitions and again in the Councilthat he had voted against or abstained on all the resolu-tions because he felt that they did not answer the needs

791


and aspirations of the indigenous population and wereincompatible with the purposes and principles of theInternational Trusteeship System.

A list of all petitions examined by the Council during1951, with relevant document references, is given below.This list includes 97 petitions annexed to resolution 345(IX) of 24 July 1951 relating to the Ewe and Togoland

unification question; other resolutions on additionalquestions raised in several of these petitions were adoptedon the recommendation of the Ad Hoc Committee onPetitions.

Unless otherwise stated, any omission in the sequenceof petition document numbers indicates that the omittedpetition was examined by the Council prior to 1951.

PetitionerAd Hoc Cttee.

ReportCouncilResol.

Western Samoa, Administered by New Zealand

Chinese Association in Samoa (T/Pet.1/3)

Tanganyika, Administered by the United Kingdom

Mr. H. O. Kallaghe (T/Pet.2/93)102

Kenya African Union and the East African IndianNational Congress (T/Pet.2/95)

Semvua Kamwe, Salim Losindillo and ShaabanMtengeti (T/Pet.2/96)

Mr. Herbert Westphal (T/Pet.2/97)Mr. Helmut Roth (T/Pet.2/98)Anonymous (T/Pet.2/R.1)

Cameroons, Administered by the United Kingdom

Five members of the Victoria Federated Council(T/Pet.4/66)

Chief N. D. Fongum (T/Pet.4/67)Ex-Servicemen's Union, Victoria (T/Pet.4/68)Bakweri Land Committee (T/Pet.4/69 & Add.1)Mr. Joseph Ngu (T/Pet.4/70)103

French Cameroons Welfare Union (T/Pet.4/71 & Add.1)103

Cameroons, Administered by France

Mr. N. Skouloukos (T/Pet.5/69 & Add.1)Union des populations du Cameroun (T/Pet.5/83)Mr. Alfred Bernard (T/Pet.5/84 & Add.1)Comité du village d'Akomnyada, (subdivision de

M'Balmayo) de l'Union des populations du Cameroun(T/Pet.5/85)

Comité régional du Moungo de l'Union des populationsdu Cameroun (T/Pet.5/86)

Mr. Moussa Montié, Propaganda Secretary, Comité regionalBamoun de l'Union des populations du Cameroun(T/Pet.5/87)

Mr. Mathias Mbongue Minyangadou (T/Pet.5/88)Comité directeur de l'Union des populations du Cameroun

and the Bureau de l'Union des Syndicats confédérésdu Cameroun (T/Pet.5/89 & Add.1)

Comité directeur du Kumzsé, Traditional Assembly of theBamiléké people (T/Pet.5/90)

T/L.130 312(VIII)

T/L.153

T/L.186

T/L.153T/L.186T/L.186T/L.186

T/L.153T/L.153T/L.200T/L.200T/L.200T/L.200

330(VIII)331(VIII)381(IX)382(IX)383(IX)383(IX)

384(IX)385(IX)332(VIII)

T/L.214T/L.214T/L.153

T/L.214 386(IX)

T/L.214 387(IX)

T/L.214 388(IX)T/L.214 389(IX)

T/L.214 390(IX)

T/L.214 391(IX)

102 T/Pet.2/94 was withdrawn by the petitioner.103 To be re-examined, by decision of the Council at its ninth session.

328(VIII)

377(IX)

329(VIII)378(IX)379(IX)380(IX)



ReportCouncilResol.

Mr. Abel M. Mimbiang (T/Pet.5/91 & Add.1, 2) . . . . . . .Kumzsé (T/Pet.5/92) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Mr. Jean Mouen (T/Pet.5/93) . . . . . . . . . . . . . . . . . . . . . .Mr. Djoumessi Mathias, President of the Comité

directeur du Kumzsé (T/Pet.5/94) . . . . . . . . . . . . . . .Comité régional Bamoun de l'Union des populations

du Cameroun (T/Pet.5/95) . . . . . . . . . . . . . . . . . . . . .Mr. Kamsi David (T/Pet.5/96 & Add.1) . . . . . . . . . . . . . .

T/L.153T/L.214T/L.214

T/L.214

T/L.214T/L.214

333 (VIII)392 (IX)393 (IX)

394 (IX)

395(IX)396(IX)

Togoland, Administered by the United Kingdom and France104

Mr. Augustino de Souza, Pres, of the Comité del'Unité togolaise (T/Pet.7/123) . . . . . . . . . . . . . . . . . .

Ditto (T/Pet.7/124) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Chiefs and People of Buem and Krachi States and of

Nkonya and Santrokofi Independent Divisions(T/Pet.6/191) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Togoland Youth Association (T/Pet.6/192-T/Pet.7/157) . .Mr. Siegfried K. Etse (T/Pet.6/193) . . . . . . . . . . . . . . . . . . .Mr. Emmanuel K. Abdallah (T/Pet.7/158 &

Add.1/Rev.1 & Add.2) . . . . . . . . . . . . . . . . . . . . . . . . .Mr. Mensan Aithson (T/Pet.7/159) . . . . . . . . . . . . . . . . . .Mr. Augustino de Souza (T/Pet.6/194-T/Pet.7/160

& Add.1-5) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Pan-Ewe Union, Kadjebi, Buem

(T/Pet.6/195-T/Pet.7/161) . . . . . . . . . . . . . . . . . . . .Mr. Sawli Katiejeri (T/Pet.6/196-T/Pet.7/162) . . . . . . . .Mr. Dermann Ayéva (T/Pet.6/197-T/Pet.7/163

& Add.1, 2) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Togoland Union (T/Pet.6/198-T/Pet.7/164) . . . . . . . . . . .Parti togolais du progrès (T/Pet.6/199-T/Pet.7/165

& Add.1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Natural Rulers and Elders of Worawora Division

in Buem (T/Pet.6/200) . . . . . . . . . . . . . . . . . . . . . . . .All-Ewe Conference (T/Pet.6/201-T/Pet.7/166 & Add.1) . .Congress of British Togoland (T/Pet.6/202-T/Pet.7/167)Dr. Pedro Olympio, Mr. Dermann Ayéva and

Chief Biregah (T/Pet.6/203-T/Pet.7/168) . . . . . . . . .Togoland Farmers' Union (T/Pet.6/204) . . . . . . . . . . . . .Representative Assembly of Togoland (T/Pet.7/169) . . .Togoland Union (T/Pet.6/205-T/Pet.7/170 & Add.1) . . . .Togoland Union and Togoland Congress

(T/Pet.6/206 & Add.1-3) . . . . . . . . . . . . . . . . . . . . . . .Convention People's Party (T/Pet.6/207) . . . . . . . . . . . . . .Mr. Ako Adjei on behalf of Mr. Tey Kwaku Ameh

(T/Pet.6/208-T/Pet.7/171) . . . . . . . . . . . . . . . . . . . .Union des syndicats du Togo (T/Pet.7/172 & Add.1) . . . .Parti togolais du progrès (T/Pet.6/209-T/Pet.7/173) . . . . .Nana Agya Mensah II (T/Pet.6/210) . . . . . . . . . . . . . . . .

T/L.217T/L.217

T/L.153

T/L.153

T/L.153T/L.217

T/L.157

T/L.216T/L.217

T/L.216T/L.157

T/L.153

T/L.216

410(IX)411(IX)

334(VIII)345(IX)335(VIII)

338(VIII)412(IX)

345(IX)

345(IX)345(IX)

345(IX)345(IX)

345(IX)

336(VIII)345(IX)345(IX)

345(IX)409(IX)413(IX)345(IX)

397(IX)337(VIII)

345(IX)339(VIII)345(IX)398(IX)

104 T/Pet. 6/ - refers to petitions concerning Togoland under United Kingdom administration.

T/Pet. 7/ - refers to petitions concerning Togoland under French administration.



ReportCouncilResol.

M r . Radji Salami (T/Pet.6/211-T/Pet.7/174) . . . . . . . .Nkonya State Council (T/Pet.6/212 ) . . . . . . . . . . . . . . .Mr. Frico Dabida (T/Pet.6/213-T/Pet.7/175) . . .Akpini State Council (T/Pet.6/214) . . . . . . . . . . . .People of Nanjuro and Nawuri in the Kpandai area

(T/Pet.6/215) . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Ditto (T/Pet.6/216-T/Pet.7/176) . . . . . . . . . . . . . . . .Mr. Augustino de Souza (T/Pet.6/217-T/Pet.7/177)Ditto (T/Pet.6/218-T/Pet.7/178 & Add.1/Rev.1) . . . . .Nana Buachie (T/Pet.6/219 & Add.1-3) . . . . . . . . . . . . .Nana Akompi Firam III (T/Pet.6/220) . . . . . . . . . .Mr. John A. Atayi, President of the Parti togolais

du progrès (T/Pet.6/221-T/Pet.7/179 & Add.1) .Ditto (T/Pet.6/222-T/Pet.7/180) . . . . . . . . . . . . . . . . . .Togbi Alphons Komla Gadje VII and Togbi Konda

(T/Pet.6/223) . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Togoland Union (T/Pet.6/224-T/Pet.7/181) . . . . . . . . .Togoland Congress (T/Pet .6/225-T/Pet .7/182). . . . . . .Ditto (T/Pet.6/226-T/Pet.7/183 & Add.1-3) . . . . . . . .Mr . Dermann Ayéva (T/Pet.6/227-T/Pet.7/184) . . . . . .Parti togolais du progrès (T/Pet.6/228-T/Pet.7/185) . .Mr. Augustino de Souza (T/Pet.6/229-T/Pet.7/186

& Corr.1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Representatives of the Mina and Ouatchi in the

District of Anécho and Regent Glyn LawsonAvassou (T/Pet.6/230-T/Pet.7/187) . . . . . . . . . . . .

Mr. John A. Atayi (T/Pet.6/231-T/Pet.7/188 & Add.1)Acting President of the Buem Native Authority

(T/Pet.6/232-T/Pet.7/189) . . . . . . . . . . . . . . . .Assiakoley II, Chief of the Canton of Porto Seguro

(T/Pet.6/233-T/Pet.7/190) . . . . . . . . . . . . . . . .Mr. Wilson and other Chiefs and Notables of the

Atakpamé Section of the Parti togolais duprogrès (T/Pet.6/234-T/Pet.7/191) . . . . . . . . .

Mr. Augustino de Souza (T/Pet.6/235-T/Pet.7/192& Add.1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

M r . John A . Atayi (T/Pet.6/236-T/Pet.7/193) . . . . . . . .Ditto (T/Pet.6/237-T/Pet.7/194) . . . . . . . . . . . . . . . .Mr. John Amanie, President of the Togoland Congress

(T/Pet.6/238-T/Pet.7/195) . . . . . . . . . . . . . . . . . .V. K. Motto Kofi II, Paramount Chief of the Asogli

State (T/Pet.6/239-T/Pet.7/196) . . . . . . . . . . . . . .Mr. Augustino de Souza (T/Pet.6/240-T/Pet.7/197) .Mr. Leo K. Agbontor (T/Pet.6/241) . . . . . . . . . . . . . . . .Buem Native Authority (T/Pet.6/242-T/Pet.7/198) .Mr. S. G. Antor (T/Pet.6/243) . . . . . . . . . . . . . . . . . . . .Mr. Keteku, President of the Asogli State

(T/Pet.6/244-T/Pet.7/199) . . . . . . . . . . . . . . . . . .All-Ewe Conference (T/Pet.6/245-T/Pet.7/200) . . . . . . .Atando Native Authority (T/Pet.6/246-T/Pet.7/201) . .Natural Rulers and Peoples of Buem State

(T/Pet.6/247-T/Pet.7/202) . . . . . . . . . . . . . . . . . .

T/L.216

T/L.216

T/L.216

T/L.216T/L.216

T/L.216

T/L.223

T/L.223

T/L.216

T/L.216

345(IX)399(IX)345(IX)400( IX)

401(IX)345(IX)345(IX)345(IX)397(IX)402(IX)

345(IX)345(IX)

403(IX)345(IX)345(IX)345(IX)345(IX)345(IX)

345 & 418(IX)

345(IX)345(IX)

345(IX)

345(IX)

345(IX)

345 & 417(IX)345(IX)345(IX)

345(IX)

345(IX)345(IX)404(IX)345(IX)397(IX)

345(IX)345(IX)345(IX)

345(IX)



ReportCouncilResol.

Acting Head Chief of Santrokofi Division(T/Pet.6/248-T/Pet.7/203) . . . . . . . . . . . . . . . . . .

Togoland Union (T/Pet.6/249-T/Pet.7/204) . . . . . . . . .Ditto (T/Pet.6/250-T/Pet.7/205) . . . . . . . . . . . . . . . . . .Nana Boakye, President of the Togoland Youth

Association (T/Pet.6/251-T/Pet.7/206) . . . . . . . . . .Togoland Congress (T/Pet.6/252-T/Pet.7/207) . . . . . . .Acting Head Chief of the Nkonya Independent

Division (T/Pet.6/253-T/Pet.7/208) . . . . . . . . . . . .Togoland Youth Association (T/Pet.6/254-T/Pet.7/209)Mr. Gerald O. Awuma (T/Pet.6/255-T/Pet.7/210) . . .Togoland Union (T/Pet.6/256-T/Pet.7/211) . . . . . . . . .Mr. Augustino de Souza (T/Pet.7/212 & Add.1, 2) . . . .Head Chief and the Chief Farmer of the Tan Division

(T/Pet.6/257-T/Pet.7/213) . . . . . . . . . . . . . . . . . .Chief farmer Messah Tsekpodui Gbefi

(T/Pet.6/258-T/Pet.7/2l4) . . . . . . . . . . . . . . . . . .M r . Aniabor (T/Pet.6/259-T/Pet.7/215) . . . . . . . . . . . .Mr. S. G. Antor (T/Pet.6/260) . . . . . . . . . . . . . . . . . . . .Ata Quam Dessou, Fio Agbano II and Mpala

(T/Pet.6/261-T/Pet.7/216 & Add.1) . . . . . . . . . .M r . Dzitowu (T/Pet.6/262-T/Pet.7/217) . . . . . . . . . . .Avatime Divisional Council, Vane

(T/Pet.6/263-T/Pet.7/218) . . . . . . . . . . . . . . . . . .Chief Gbadegbe, Traditional Chief Guedo and Prince

Patsoh (T/Pet.6/264-T/Pet.7/219) . . . . . . . . . . . . . .Chief Sekyere of Likpe Agbosome

(T/Pet.6/265-T/Pet.7/220) . . . . . . . . . . . . . . . . . . .Parti togolais du progrès (T/Pet.7/221 & Add.1) . . . . . .Togoland Ex-Servicemen's Association

(T/Pet.6/266-T/Pet.7/222 & Add.1) . . . . . . . . . . . .Chief farmer of Likpe (T/Pet.6/267-T/Pet.7/223) . . . . .Parti togolais du progrès (T/Pet.6/268-T/Pet.7/224) . . . .Section d'Atakpamé de l'Unité togolaise (T/Pet.7/225)Lukusi Improvement Society (T/Pet.6/269-T/Pet.7/226) .Mr. Siegfried Kwami Etse (T/Pet.6/270) . . . . . . . . . . . . .Section féminine de l'Unité togolaise

(T/Pet.7/227 & Add.1) . . . . . . . . . . . . . . . . . . . . . . .Mr. Augustino de Souza (T/Pet.7/228 & Add.1) . . . . . . .Togboe Nyangasi (T/Pet.6/27l-T/Pet.7/229) . . . . . . . . .Chief Buami, member of the Southern Togoland

Council (T/Pet.6/272-T/Pet.7/230) . . . . . . . . . . . . .Togoland Congress (T/Pet.6/273-T/Pet.7/231) . . . . . . . .Head Chief Nyangasi (T/Pet.6/274-T/Pet.7/232) . . . . . .Togoland Youth Association (T/Pet.6/275) . . . . . . . . . . .Avatime Native Authority (T/Pet.6/276-T/Pet.7/233) . . .Mr. Fransenedzo Egbeegbe (T/Pet.6/277-T/Pet.7/234) . .Togoland Youth Association (T/Pet.6/278) . . . . . . . . . . .Jeunesse de l'Unité togolaise (T/Pet.7/235) . . . . . . . . . . .Chefs de canton Agou Pebi IV and Panta Kutumua V

(T/Pet.7/236) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

T/L.223T/L.220

T/L.216

T/L.220

T/L.223

T/L.220

T/L.216

T/L.220T/L.220

T/L.216

T/L.216T/L.220

T/L.220

345(IX)345(IX)

345(IX)345(IX)

345(IX)345(IX)345(IX)345 & 419(IX)345 & 414(IX)

345(IX)

345(IX)345(IX)405(IX)

345(IX)345(IX)

345(IX)

345(IX)

345(IX)345 & 414(IX)

345 & 416(IX)345(IX)345(IX)345 & 414(IX)345(IX)406(IX)

345 & 414(IX)345 & 414(IX)345(IX)

345(IX)345(IX)345(IX)345 & 407(IX)345(IX)345(IX)408(IX)345 & 414(IX)

414(IX)



ReportCouncilResol.

Mr. Augustino de Souza and the Section féminine del'Unité togolaise (T/Pet.7/237 & Add.1, 2) . . . . . . . . T/L.220 345 & 415(IX)

Akpini Native Authority (T/Pet.6/279-T/Pet.7/238) . . . . 345(IX)Togoland National Farmers' Union (T/Pet.6/280) . . . . . . T/L.216 409(IX)Palanga, Chief of the Cabrais and Lossos, Chairman

of the Union of the Chiefs of NorthernTogoland (T/Pet.6/281-T/Pet.7/239) . . . . . . . . . . . . . 345(IX)

Chief Ihou Attigbe Teme Odere(T/Pet.6/282-T/Pet.7/240) . . . . . . . . . . . . . . . . . . . . 345(IX)

Chief Anonene Ahovi (T/Pet.6/283-T/Pet.7/24l) . . . . . . . 345(IX)Atakpamé Branch of the Parti togolais du progrès

(T/Pet.6/284-T/Pet.7/242) . . . . . . . . . . . . . . . . . . . . 345(IX)Chiefs Kanli Adjonou, Nayo Toyikin and Kossi Doni

(T/Pet.6/285-T/Pet.7/243) . . . . . . . . . . . . . . . . . . . . 345 (IX)Mouvement Jeunesse Centre (T/Pet.6/286-T/Pet.7/244) . . 345(IX)Head Chief Dauhoni Oussounou

(T/Pet.6/287-T/Pet.7/245) . . . . . . . . . . . . . . . . . . . . 345(IX)Glyn Lawson, Regent of Anécho and other chiefs

(T/Pet.6/288-T/Pet.7/246) . . . . . . . . . . . . . . . . . . . . 345(IX)Togoland Youth Association (T/Pet.6/289-T/Pet.7/247) . . 345(IX)

Togoland Union (T/Pet.6/290-T/Pet.7/248) . . . . . . . . 345(IX)Togoland Congress (T/Pet.6/291-T/Pet.7/249) . . . . . . . . . 345(IX)Atando Native Authority (T/Pet.6/292-T/Pet.7/250) . . . . 345(IX)Malm William, Amefia Herman and some others from

the Cercle de Klouto (T/Pet.6/293-T/Pet.7/251) . . . . 345(IX)Mr. John A. Atayi (T/Pet.6/294-T/Pet.7/252) . . . . . . . . . . 345(IX)Some Chiefs and Notables of the Parti togolais du

progrès (T/Pet.6/295-T/Pet.7/253) . . . . . . . . . . . . . . . 345(IX)Head Chief of Bowiri (T/Pet.6/296-T/Pet.7/254) . . . . . . . 345(IX)Chiefs of the Canton of Klouto (T/Pet.6/297-T/Pet.7/255) 345(IX)Togoland Farmers' Union (T/Pet.6/298-T/Pet.7/256) . . . . 345(IX)

New Guinea, Administered by Australia

Captain A. J. Kutt (T/Pet.8/3) . . . . . . . . . . . . . . . . . . . . . . T/L.152 105

New Guinea Chinese Union, Rabaul, and the OverseasChinese Association, Kavieng (T/Pet.8/4) . . . . . . . . . . T/L.152 106

Paramount Chief Tongania (T/Pet.8/5) . . . . . . . . . . . . . . . T/L.152 326(VIII)New Ireland Native Club (T/Pet.8/6) . . . . . . . . . . . . . . . . T/L.152 327(VIII)

Nauru, Administered by Australia, New Zealand, United Kingdom

Mr. P. James Aingimea (T/Pet.9/2) . . . . . . . . . . . . . . . . . . T/L.151 320(VIII)Mr. John Harris (T/Pet.9/3) . . . . . . . . . . . . . . . . . . . . . . . . T/L.151 321(VIII)People of Aiwo (T/Pet.9/4) . . . . . . . . . . . . . . . . . . . . . . . . T/L.151 322(VIII)Chinese community (T/Pet.9/5) . . . . . . . . . . . . . . . . . . . . . T/L.151 323(VIII)Nauruan Council of Chiefs (T/Pet.9/6) . . . . . . . . . . . . . . . T/L.151 324(VIII)Chiefs of Yarren and Boe (T/Pet.9/7) . . . . . . . . . . . . . . . . T/L.151 325(VIII)

105 No decision was taken on this petition because the petitioner had died in 1950.106 Consideration postponed.



ReportCouncilResol.

Trust Territory of the Pacific Islands, Administered by the United States

Commissioner and the Elected Village Council of Luta(T/Pet.10/1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.143 313 (VIII)

Palau Congress and the Palau Council on behalf ofthe people of the Palau Islands (T/Pet. 10/2) . . . . . . . . T/L.143 314(VIII)

Women of Palau (T/Pet. 10/3) . . . . . . . . . . . . . . . . . . . . . . T/L.143 315(VIII)People's Representative and People of the Village

of Tanapag (T/Pet.10/4) . . . . . . . . . . . . . . . . . . . . . . . T/L.143 316(VIII)House of Council and the House of Commissioners,

Saipan (T/Pet. 10/5) . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.143 317(VIII)Chairman of the High Council of Saipan (T/Pet. 10/6) . . . T/L.143 318(VIII)Iroij of the Marshall Islands (T/Pet.10/7) . . . . . . . . . . . . . . T/L.143 319(VIII)

Trust Territory of Somaliland, Administered by Italy

Certain Chiefs, Notables and Holy Men of the ScekalTribe (T/Pet.11/1) . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.153 340(VIII)

Certain Sultans, Ugaz, Garad and Chiefs representinga large number of tribes of Hawya origin(Somalis) (T/Pet. 11/2) . . . . . . . . . . . . . . . . . . . . . . . . T/L.153 340(VIII)

Chiefs and Notables of Galcaio District(T/Pet.11/3, Part II) . . . . . . . . . . . . . . . . . . . . . . . . . T/L.185 359(IX)

Five residents of Ethiopia (T/Pet. 11/3, Part II) . . . . . . . . . T/L.185 360(IX)Mr. Ahmed Mohamud Ismail Hussein (T/Pet.11/4) . . . . . T/L.183 348(IX)Messrs. Ghedi Guled, Mohamed Warsama, Elmi Amin

and Abbi Salad (T/Pet.11/5) . . . . . . . . . . . . . . . . . . . . T/L.183 349(IX)Mr. Omar Hassan (T/Pet. 11/6) . . . . . . . . . . . . . . . . . . . . . . T/L.183 350(IX)Chiefs, Notables and Leaders of the Somali Youth

League, Branch of Kismayu (T/Pet. 11/7) . . . . . . . . . . T/L.185 361(IX)Mr. Abdi Ali Omar (T/Pet.11/8) . . . . . . . . . . . . . . . . . . . . . T/L.183 351(IX)Somali Youth League, Branch of Bender Kassim

(T/Pet.11/9) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.185 362(IX)Messrs. Abshir Hassan, Yusuf Mussa Abuker, Abduraham

Yusuf, Mohamud Omar, Mohamud Abdi Nur,Omar Abdulle, Farah Jibril and Hussein Warsama(T/Pet.11/10) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.185 363(IX)

Somali Youth League, Galcaio District (T/Pet. 11/11) . . . . T/L.183 352(IX)Somali Youth League, Branch of Bender Kassim

(T/Pet.11/12) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.183 353(IX)Somali Youth League, Local Committee of Dolo

(T/Pet.11/13) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.185 364(IX)Somali Youth League, Mogadiscio (T/Pet.11/14) . . . . . . T/L.185 365(IX)Messrs. Hussein Mohamed Egal, Elmi Fara Ali, Hussein

Fara Ahmed and Saleh Mohamed (T/Pet.11/15) . . . . T/L.183 354(IX)Somali Youth League, Branch of Bardera (T/Pet.11/16) . . T/L.185 366(IX)Somali Youth League, Branch of Lugh Ferrandi

(T/Pet.11/17) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . T/L.185 367(IX)Somali Youth League, Branch of Gardo (T/Pet.11/18) . . . . T/L.185 368(IX)Ogaden Itarahiem, Chief Bagiuni (T/Pet.11/19) . . . . . . . . T/L.183 355(IX)Mr. Tom Groves (T/Pet.11/20) . . . . . . . . . . . . . . . . . . . . . T/L.185 369(IX)Mr. John C. Gee (T/Pet.11/21) . . . . . . . . . . . . . . . . . . . . . T/L.183 356(IX)Somali Youth League, Mogadiscio (T/Pet.11/14) . . . . . . T/L.185 370(IX)



• ReportCouncil

Resol.

International Ethiopian Council for Study and Report(T/Pet.11/23) . . . . . . . . . . . . . . . . . . . . . . . . . . . .

Mr. Sciaffet Hussen (T/Pet. 11/24) . . . . . . . . . . . . . . . . .Somali Youth League, Branch of Afmadu (T/Pet. 11/25)Mr. Mohamed Ali Yusuf and others (T/Pet.11/26) . . . .Somali Youth League, Branch of Schushuban

(T/Pet.11/27) . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Somali Youth League, Branch of Hordio (T/Pet. 11/28) .Somali Youth League, Branch of Tarbeh (T/Pet.11/29)Mr. Yusuf Gula, Somali Youth League of Hafun

(T/Pet.11/30) . . . . . . . . . . . . . . . . . . . . . . . . . . . .Somali Youth League, Branch of Bargal (T/Pet.11/31) .Mr. Mohamed Sheikh Nur (T/Pet.11/32) . . . . . . . . . . . .

T/L.185T/L.183T/L.185T/L.185

T/L.185T/L.185T/L.185

T/L.185T/L.185T/L.183

371(IX)357(IX)372(IX)373(IX)

374(IX)375(IX)376(IX)

375(IX)374(IX)358(IX)

Documents

V. Questions Concerning Non-Self-Governing Territories and ...cdn.un.org/unyearbook/yun/chapter_pdf/1951YUN/1951_P1_SEC5.pdf · Non-Self-Governing Territories and Trusteeship Questions605