PMM(46) 17th Meeting (extract) LONDON, 22 May 1946, 11 a.m.

TOP SECRET

[matter omitted]

South-West Africa
2. FIELD-MARSHAL SMUTS said that he wished to take this
opportunity of discussing with representatives of other parts of
the Commonwealth the proposals of the South African Government for
the future of South-West Africa.

South-West Africa was now held by the Union of South Africa under
a 'C'-class Mandate. It was, however, different from other
territories in that class in that geographically it was part and
parcel of South Africa. indeed, it was only by historical accident
that it did not form part of the Union. In the scramble for
Africa, Germany had acquired this barren country in 1886 and built
up a colony there with immigrants from Germany. These German
settlers caused the South African Government considerable trouble
during the 1914-18 war.

At the Peace Conference after the last war President Wilson had
been sympathetic to the idea that the territory should be annexed
by South Africa. A statement had, however, been included in the
Fourteen Points which precluded annexations of territory. A way
out of this difficulty was found by the creation of the special
'C'-class Mandates, which could be administered by the Mandatory
Power as integral parts of its territory. South-West Africa had
been administered accordingly ever since, but there was a strong
feeling in South Africa that it should now be incorporated in the
Union. South Africa had been troubled again before this war by a
Nazi movement among the settlers in South-West Africa, and it had
been necessary to send from the Union a strong police force to
keep the peace in the territory.

The white population in South-West Africa, numbering some 31,000,
had a local Parliament of their own. It had, however, no
jurisdiction over the native population, as the Union had
responsibility under the Mandate for native policy. The local
Parliament had passed unanimously more than one resolution that
the territory should be incorporated in the Union. The Union
Government had consulted the native population; this numbered some
350,000, consisting in part of scattered and disintegrated tribes,
with very little tribal organisation, but for the most part of
more highly organised and virile Bantu tribes. These were governed
practically on the principles of indirect rule with their own
chiefs and councils. While it had been rather difficult to consult
the scattered tribes, consultation with those who had their own
council had been easier and it was possible to say that some 80
per cent. of the native population had agreed that the territory
should be incorporated in the Union.

Field-Marshal Smuts said that in San Francisco he had given notice
that he would apply to the United Nations Organisation for their
approval of incorporation. He recalled that the objective of the
trusteeship system was the development of self-government. It
seemed to him that this objective could be reached equally well by
making a mandated territory independent and by making it, at its
own request, part of a neighbouring independent territory. He
proposed to raise the matter, therefore, at the Assembly in
September next. He quite appreciated that there might be
criticisms of the Proposals in the Assembly, because other Powers
holding Mandates were accepting trusteeship arrangements. There
would be opposition from those who, for one reason or another,
were not in sympathy with the policy of the Union Government and
from those who objected in principle to the colonial system or
imperialism. In these circumstances, the South African Government
were anxious for such assurances of support as they could obtain
and naturally they turned first to their friends in the
Commonwealth. The argument was often put forward in South Africa
that she derived status and strength from membership of the
immensely powerful association of the Commonwealth. If now she
received support from the other members of the Commonwealth, that
would be striking evidence of the truth of the argument and would
be of very great assistance in promoting the causes they all had
at heart.

LORD ADDISON said that the United Kingdom Government had given
much thought to this matter. They recognised the great force of
the considerations to which Field-Marshal Smuts had referred and
they were clear that geographically South-West Africa would
naturally be associated with the Union. Indeed Walvis Bay, its
port; was already part of the Union. On the other hand, they were
alive to the difficulties which were likely to arise in discussion
of this matter at the United Nations Assembly. The chief concern
of the United Kingdom Government had been whether incorporation
would be supported by the inhabitants of the territory. They had
concluded that, on the understanding that it was so supported,
they would themselves give the South African Government their
support. It seemed clear that the white population was heartily in
support of incorporation. As to the natives, they understand that
a section of the Herreros did not favour it but that a very large
majority of the remainder were in favour.

Lord Addison said that the view of the United Kingdom Government
had been reached after full consideration and detailed discussion
as to the facts of the situation.

MR. MACKENZIE KING said that, if he had been in Field-Marshal
Smuts's place, he did not doubt that he would have taken the same
view of the matter. He had not had an opportunity of discussing it
with his colleagues but he thought that they would share his
opinion. He assumed that it would not be advisable to make any
declaration of the attitude of the other members of the
Commonwealth before the matter was brought before the United
Nations Assembly.

FIELD-MARSHAL SMUTS agreed with this. He thought that any prior
expression of solidarity by countries of the Commonwealth would be
very undesirable.

DR. EVATT said that his advice would be that Field-Marshal Smuts
should tread very warily in this matter. He felt certain that his
proposal would meet with objection at the United Nations Assembly.

At San Francisco there had been very strong feeling against the
annexation of Mandated Territories. He thought that that feeling
would be found also in the Assembly.

Speaking personally, he had every sympathy with Field-Marshal
Smuts's general objectives and so far as he could he would do
nothing to embarrass him. But the Australian Government had had no
opportunity of considering the matter. They would have to take
into account that, if South Africa incorporated South-West Africa,
it would provide an argument to their own expansionists for the
incorporation of New Guinea into Australia. Although
geographically New Guinea was separate from Australia, it was part
and parcel of their defence system. The Australian Government had
always resisted such suggestions in the past on the ground that
the obligations of the Mandate must continue and that the new
trusteeship system, which would replace the Mandate, would give to
the trustee much greater powers in regard to defence matters than
they had had under the Mandate system. They had been asked by the
United Kingdom Government whether they would take the lead in
announcing that they were ready to place their mandated
territories under trusteeship and they had, in fact, made a public
statement that they would do so. He suggested that in bringing the
matter before the United Nations Assembly Field-Marshal Smuts
should present to the Assembly full factual information regarding
the territory.

MR. NASH said that from a personal point of view he, too, would
like to support Field-Marshal Smuts. But he foresaw much argument
in the Assembly on the proposition. He referred to the fact that
the objective of the trusteeship system was that the territories
under trusteeship should be led towards independence. If the
overwhelming majority of the population wished that independence
to take the form of association with South Africa, would that not
be possible within the trusteeship system? In that event he
thought that it might be possible for the New Zealand Government
to support the proposition.

MR. ATTLEE suggested that an analogy for what Mr. Nash was
proposing could be found in the case of Transjordan. Transjordan
had now been given her independence and it was open to her, if she
so desired, to associate herself with any other Arab State.

MR. NASH agreed that this would be an analogy.

DR. EVATT suggested, however, that the circumstances might be
somewhat different, since it was not suggested that the population
of South-West Africa were ready for full self-government now or
would be within any foreseeable time. He suggested that it might
be possible to include in a trusteeship agreement for South-West
Africa a clause to the effect that if the people of the territory
made it clear by a vote or plebiscite that they desired
incorporation in the Union, then the trusteeship agreement should
cease and incorporation should take place. He suggested that
Field-Marshal Smuts might consider this suggestion.

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