IMPERIAL AFFAIRS

Evening Post, Volume CX, Issue 36, 11 August 1930, Page 10

IMPERIAL AFFAIRS

THE COMING CONFERENCE

NEW ZEALAND'S ATTITUDE

The various subjects listed for discussion at the forthcoming Imperial Conference were dealt with in a lengthy statement made ■ this afternoon by the Prime Minister (the Hon. G. W. Forbes) in initiating a debate on Imperial affairs in the House of Representatives. Mr. Forbes indicated on broad lines the altitude the Government proposes to adopt on behalf of New Zealand in respect to the important matters which.have been set out in the agenda. Declaring that New Zealand valued ils association with ihe Motfier Country and wished to make it as intimate as possible, both politically and economically, Mr. Forbes said that the Dominion : had no complaints and no demands, but desired to bear ils share in any measure that would serve the welfare of the Motherland and Dominions. He emphasised the Government's conviction that the welfare and prosperity of the Empire depended upon a continuation of the close association of the partner Governments, the policy of Which should be decided after continuous consultation. The Prime Minister declared that it was not desired to alter the poAvers in regard to New Zealand legislation that would adversely affect the very high standing of New Zealand credit on the London market. On the subject of defence and foreign policy, lie expressed the view; that New Zealand must to a large extent be guided by the experience and necessities of the United Kingdom. . Mr. Forbes said that the Government had not altered its opinion regarding contributing £125,000 per annum, with a maximum of £1,000,000, to the cost of the Singapore Base. "Regarding the economic side of the Conference agenda, Mr. ;; Forbes said he did not propose to commit the Government on the • subject of bulk purchases and price stabilisation. ' : In Conclusion, he said it was hoped to negotiate trade agreements -■with Canada and Avilh France. .

"'Members will, I am sure, readily re-j cognise that on certain questions it would be premature to initiate a pubHe discussion before they have been considered at the Conference," said Mr. Forbes. "Defence and foreign policy are conspicuous examples on which a considered opinion could only be given after the fullest information confidential and otherwise had been supplied. I hope, however, in the course of my -remarks- ■to give sufficient indication of the general attitude of the Government towards the subjects on the agenda paper, and I shall be glad to " Jhear and to consider any views that members may see fit to express on these or' any other subjects. "It will be understood, of course, that the decisions of the Conference wilt 'not bind any Dominion against the will of its Parliament, and- a copy of" the proceedings of the Conference will be laid before you in duo course. The House will no doubt agree that the representative of New Zealand must to a considerable extent be allowed a free hand in the discussion and decision of the' various subjects to be dealt •with at the Conference, but I hope to indicate in general terms the lines that it is intended to follow. OUR TRADITIONAL ATTITUDE. "I wish to make it plain at the outset that the present Government share in no less measure than previous Governments tho traditional attitude of 2Tew Zealand towards the United Kingdom. We value very highly our continued association with the Mother " Country, and it is our wish to maintain this association as close and as intimate as possible, both politically and economically. We have no complaints and no demands, and wo shall enter.this Conference as the representatives of New Zealand have entered previous Conferences with the utmost spirit ;of goodwill to tho Mother Conntry, and to our sister Dominions, and with an. earnest desire to bear our share in any measure that will serve the common welfare. The people of the United Kingdom have, I hope, learned to . .anticipate .with confidence such an attitude, on our. part, and I know that it will be endorsed without reserve by the. members of this House, and by the people of the Dominion. "As members are aware, it is only within tho last few days that the agenda has been sufficiently developed to enablo a statement to bu made, and, indeed, I think that it is riot yet finalised, and that additional subjects may be expected to be added as time goes on. Tho distance of New Zealand from the United Kingdom, and-tho length, of, time that is necessarily taken in the transit of documents combined with a delay on this occasion in pre--paring the; agenda, have been the cause of some embarrassment in this connection. ■ AYe are, however, leaving no stone unturned to gather the fullest possible information on overy subject on the list, and we have also taken steps to obtain the views on economic .subjects of the Association of New Zealand Chambers of Commerce, of the ' New Zealand Manufacturers' Federation, of the New Zealand Association .of British Manufacturers and Agents, and of the various Control Boards. The information as it is obtained is being carefully collated and analysed in my own office, and before departure from New Zealand a complete dossier of the necessary information will be available for, the New Zealand representative. INTER-IMPERIAL RELATIONS. .*' Turning now to the agenda itself, and to the first main head, 'InterImperial Relations,' the most important subject for consideration under this head will be the report of the experts' .conference on the operation of Dominion legislation; a copy of which has already been laid before members. I do not propose to discuss this report in detail, as members may be presumed to be already familiar with it, and it is not necessary for me to call attention, to the vital importance of tho recommendations or to their effect on the constitutional relationships of the members of the British Commonwealth of Nations. The question of the status of Dominion Governments and their powers and obligations has been the subject of continued discussion for a Very lengthy period, and has been a matter of deep concern to several members of the Commonwealth. The individual signature by the Dominions of the Treaty of Versailles was perhaps the first definite step in the development of a controversy that has from time to time threatened to become acute. The deliberations of succeeding Imperial Conferences have resulted in the emergence of an entirely new theory of the constitution of the Empire and the birth of a doctrine of Dominion status that could not be made to fit within the construction of the British Commonwealth as it had'been understood in the past. The individual membership of the Dominions in the League of Nations and their constantly growing participation in international affairs inevitably focussed ' attention upon the theory of Dominion status, and the matter received the earnest consideration of the Prime Ministers of f jt]l ( ttie Governments concerned at the

Imperial Conference in 19-0, when a committee, headed by the late Earl Balfour, produced a momentous: report, which was accepted by tho Plenary Conference, based on the dictum that tho British Dominions are 'autonomous communities within the British Empire, equal in status, in no way subordi-. uate ouo to another in any aspect of their domestic or external affairs, though united by a common allegiance to the Crown, and freely associated as members of the British Commonwealth of Nations.' In order to bring the existing legal position into conformity with this new theory of constitutional relationships, the Experts' Conference, of which tho report is now before the House, sat in 1929, and New Zealand was represented at this conference by the then High Commissioner, Sir James Parr, and by Mr. S. G. Raymond, K.G. CONTINUED CLOSE ASSOCIATION;

I"I do not propose to enter into any examination of the necessity or the desirability of the 'changes, in status and in powers contemplated by the 192G Imperial Conference, and now proposed by the Experts' Conference in 1929," said Mr. Forbes. . "The Governments of this Dominion, whatever their political'doctrines, and tho people of New Zealand would, I think, have been quite content to leave things as they were. Wo have not in any way been embarrassed/by the terms of our association with His Majesty's. Government in the United Kingdom, nor have we been restricted in the control of our own affairs. So far as we aro concerned, and I think I am interpreting the view of previous Governments as well as of the present Administration, we should have been content with the existing structure of the Empire, and we had no desire to press for any change. : But it is impossible to ignore the ,'fact that a position entirely acceptable to us has not been acceptable to other members of the British Commonwealth, and in a political organisation whose most marked characteristic is its dependence entirely upon the goodwill of its component parts it is obvious that its, continuance in the future must depend upon a basis acceptable to all. It was no doubt for this reason that the representatives of New Zealand at the 1926 Imperial Conference concurred in the report of the Inter-Imperial Relations Committee and in tho enunciation, of tho doctrine of equality of status among all His* Majesty's Governments to which I have just referred. It is from this point of view that the present Government have considered the report of the 1929 Experts' Conference, and it is from this point of yiew that the representative of New Zea-. land at the forthcoming Imperial ponfereaes must, discuss that report. We are convinced, that the welfare, the' safety, and' the' prosperity of every portion of the British Commonwealth now depend to a very j material extent- upon its continua- | tion as a close association of partner Governments, the policy of which should be decided after continuous consultation. "New Zealand did not press for the changes that are now proposed, and in some respects I think New Zealand would not have wished to support the position that has now developed. We must, however, face the facts, and there can, I think, be no question that the Experts' Report carries to their logical conclusion the necessarily vague decisions as to Dominion status of the Imperial Conference of 1926. The Government do not feel that they could effectively oppose the acceptance of these recommendations in respect of such Dominions as may desire such a course. Whether we may approve of them or disapprove of them wo are forced to the conclusion that they flow naturally from the decisions of the 1926 Conference, and that wo could not now if we wished alter the position that has developed. If at the forthcoming Conference therefore it should appear-—and I have little doubt that it will appear —that tho recommendations of the report meet with the common acceptance of His Majesty's and. other Governments, then New Zealand will not dissent. NOT OBLIGATORY. • "Members will have- noticed that these recommendations are permissive only, and not obligatory upon any member of the British Commonwealth. Eveu when the immediate steps proposed by the report to facilitate the complete autonomy of the Dominions have been taken, either in the form of United Kingdom legislation or otherwise, it will still remain for the New Zealand Government and for tho New Zealand Parliament to decide how far these recommendations should be adopted, if at all, in respect of New Zealand. Wo do not propose in tho jiieanfiiine to take any active steps in respect of tho report, and if, as will no doubt be tho case, tho report is adopted by the Imperial Conference with or without amendment, then the New Zealand Parliament will bo consulted before any action is taken in respect of this Dominion.. Indeed, in i one respect the

New Zealand Government are definitely averse from. carrying into effect the full implications of the report. We do not wish to make any alteration in the present powers in regard to New Zealand legislation that would adversely affact the very high standing of New Zealand credit on the London market, and whatever the event we shall carefully safeguard the position in this respect. "ONE STEP AT A TIME." "The House will understand that j while the recommendations of this re- ] port) if adopted by the ftnpcrial Conference., will ih\ doubt il sjioso of any question as to t'no status of each member of the British Commonwealth, they j cannot be regarded as a complete solution of the problems of our association together. ■ Certain implications of the report will nquire to bo carried to a final conclusion.' It is perhaps wise, however, to take ono step at a lime, and I think there will lie general agreement that tho step that is proposed by the report is sufficiently wide for the moment. The passage of time will no doubt indicate further necessary adjustments in .tho position now to be laid down, aud in the meantime, in our opinion, the most important problem of our constitutional relationship* is j no. longer that of freedom of: equality,' but that of. consultation and co-opera-tion. If the British Commonwealth of j Nations is to continue, as wo in this country devoutly, hope it will, then som means must be found of co-ordiu-ating in so far as they have a common bearing tho now froo and unrestricted activities of tho several mem- ! bers of the Commonwealth. That from our point of view is the problem of the moment, and it is in this direction that our efforts will bo principally droctcd at the Imperial Conference. A solution of this problem will be by o means easy to discover, and, indeed, I think that time and the tests of practice will be the principal factors in evolving a satisfactory system.

"lt will be noted from the report that the experts recommend for the consideration of the Imperial Conference the establishment of a tribunal for the determination of any dispute that may arise between members of the British Commonwealth. In .'international relations, disputes on matters of right in which we are concerned will now be settled by reference to the Permanent Court of International Justice at The Hague, but in accepting the compulsory jurisdiction of this Court a special reservation was made of Inter disputes, and it is for the consideration of such disputes that this Tribunal is now proposed. .We feel it very unlikely that we ourselves would be involved in any. dispute with another member of tho British Commonwealth that might call for the intervention of such a Tribunal, but at the same time it is our intention to fall in with any reasonable proposal, for the setting up of such a Tribunal in order to avoid any possibility of friction between His Majesty's several Governments. NATION ALITY QUESTION. "One of. tho special subjects referred to in the report as calling for an agreed policy throughout the Commonwealth is that of nationality, including the very vexed question of the nationality pf married women. Under tho auspices of the League of Nations a conference on. the codification of International Law has recently been considering this, subject, and its report, which is only just .to hand, is now receiving the consideration of the Government. J It is our view that a uniform law of nationality throughout the British Commonwealth is desirable, but we do not feel that uniformity will be easy to attain, or. indeed, that it can be attained without a considerable compromise, especially with reference to the case of married women. "The House will recognise that this subject is by no means free from difficulties, and that, perhaps• tho outstanding necessity of the situation in tho interests of tho ■woman herself and of the children of such a marriage' is that the nationality of tho whole family should be tho same. The possibilities of complications and indeed of.hardship whero say the husband is of one nationality, tho wife of another, and the children perhaps of a third, ,pre by no means negligible, and the utmost that I can say at tho moment is that if I am to represent New Zealand at the Imperial Conference I shall.use my, best efforts towards a solution that will meet with general acceptance throughout the Commonwealth, and that I will do all that is proper to protect the interests of women. I might add that the Codification Con•■ference was unable to arrive at ' any really effective decision on this subject, and the utmost they were able tq decide upon was that to avoid certain eases of 'statelessriess:' a. woman on' marriage should not lose her existing nationality unless sho received the nationality of her husband. They added a . recommendation, however, that States should continue to study tho possibility of introducing equality of the sexes in matters of nationality. FOREIGN POLICY. "I do not propose to outer into any lengthy disquisition on the delicate questions of foreign policy. Wo welcome, of course, tho growing strength of the movement towards international peace and disarmament, and we shall do all that,properly lies in our power to, further this movement having due regard to the safety and protection of this Dominion and of tho British Commonwealth. Members are referred to the increasing activities of the' League of Nations in tho direction of security as evideiieed by the proposed amendments to the Covenant' of the League, the General Act, and Model Treaties for the Pacific Settlement of International Disputes, the Model Treaty to strengthen tho means of proventing war, the, Model Treaties of Mutual Guarantee and Non-Aggression, and the Draft Convention on Kuan-. cial Assistance. Some account of tho proceedings of the League in this connection will bo found in Parliamentary Paper A 5, and it is the view of the League that tho encouragement of a feeling of security will stimulate the rather disappointing progress of disarmament. Tho New Zealand Government are giving careful study, to these instruments and to the recent" activities of League Committees on the subject, the reports of which have just been received, and we hope that an opportunity will be afforded for further discussion at the Imperial Conference. However encouraging tho continued improvement in international relations may be, and there is no doubt that it is encouraging, he would, I think, be a rash man who concluded that the possibility no longer exists of international complications and their attendant conflicts and miseries. Wo in. Now Zealand are in a happy position in our geographical isolation from the problems of the old world and in our very complete economic affiliation to tho United Kingdom. By reason of these facts we aro relieved to a considerable extent from tho apprehensions and the perplexities of less favoured countries and aro thus enabled to devoto our attention to the every-day affairs of our own national cxisteueo without an undue regard to international friction. But that the possibilities of such friction still exist I for one have no doubt, and it is tho duty of tho Prime- Minister of this country to lake such stops as the international situation, may require to provide for every possible eventuality. Our safety, of course, depends very largely, if not entirely, upon the British Navy, and though we shall welcome any progressive and common reduction iv the heavy burden of national armaments, the day lias not yet, in our view, arrived when it is possible to .ignore the necessity of naval

defence. Our prosperity in New Zealand, and, indeed, our safety, depend almost entirely on the prosperity and the safety of tho United Kingdom, and it is unfortunately a fact that the United Kingdom is not able to adopt the detached attitude with regard to international affairs that our more fortunate position enables us to take. On these important subjects of defence and foreign policy, I think it will be generally agreed that we must to a large extent be guided by the experience and the necessities of the United Kingdom. I NAVAL POLICY. "Members have had laid beforo them the text of the London Naval Treaty of 1930, which embodies an agreement between the three great Naval Powers, Groat Britain, the United States of America, and Japan, and the partial agreement of! lfran.ee and Italy. The Treaty murks an important step in naval disarmament and accord between tho great Naval Powers and will, of course, enable His Majesty's Government in the United Kingdom to effect substantial economics. The New Zealand Government are at present awaiting tho full report of their representative at the Conference (Sir Thomas -Wilford), and this is expected almost immediately. I feel I am expressing tho feeling of the great majority of the people of this Dominion who have given consideration to the vital question of naval defence that the adequate protection of the seaborne trade of the British Commonwealth is a matter of paramount importance, especially to a country like New Zealand, which is wholly dependent up_on this means of transportation of her export products to the great markets of the world. Therefore any material diminution of naval strength in this respect must give eauso for very serious thought. It must be remembered, too, that some of the provisions of the Treaty have met with criticism by acknowledged naval experts of high standing, in the United Kingdom. But while wo in New Zealand may have some misgivings regarding the wisdom of these sections of tho Treaty it should be borne in mind that the cost of the British Navy is almost wholly borne by tho taxpayer of tho United Kingdom, and not by us. "I do not wish' to say more than aj word or two concerning tho Singapore Base. As I have already advised the House, this matter is to receive consideration at the Imperial Conference, and it would bo premature to discuss the matter in any detail now. The Government, and I think the people of New Zealand, have been impressed with the necessity for a base ill the Pacific from which the British fleet could operate should the occasion unhappily arise. We have shown the importance that we attach to this question by a substantial annual contribution towards the cost of the base of £125,000 per annum with a maximum of £1,000,000, and we have in no wise altered our opinion in that respect. INTER-IMPERIAL TRADE. "Turning now to the 'economic., side of the agenda, we have first of all the highly important subject of inter-Im-perial trade. The Government fully recognise1 the importance of^this subject, which is equalled only by its complexity and its difficulty of approach. Tbo position of New Zealand is a remarkable one inasmuch as our economic prosperity and indeed our existence is almost entirely dependent upon the sale of our primary products in the United Kingdom. - Anything, therefore, that disturbs our market in that country, has an immediate effect upon New Zealand, and thus from material interests alone —a basis upon which I certainly do not wish it to bo understood that we rely—-we must deeply deplore the existing depression in Great Britain. We are, of course, a small community, wo have our own economic difficulties, and there is perhaps little that we can do to assist the Old Country. ■ It will, no doubt, be sufficient for me to say that quite apart from our own individual interests we shall hope to assist as best we may in any movement that promises an improvement in the economic prosperity of the United Kingdom, and that we shall give most earnest and sympathetic consideration to any proposition that may be laid before the Conference^ "Members will not, I think, expect me to enter into a discussion of the advantages or otherwise of various fiscal systems or of the proposals that are now, I understand, agitating public opinion in Great Britain—the fiscal system of the United Kingdom is a matter entirely for tho . consideration of its own people and its own Government. We can all agree, however, that a determined effort- to rise out of the economic rut of the present day is called for, and that" the people of New Zealand would not wislh to be behindhand in taking their part in this task. Unfortunately, it does not rest hi the power of Governments or Conferences to. remove at a stroke the economic ills from which practically the whole world is suffering. We yield to tho/people of no Dominion in our devotion to tho principles of inter-Imperial unity both economically and otherwise, and we will enter upon the discussion of the economic subjects at the Conference with all goodwill, and with the desire to fostor trade within the Commonwealth in every possible way. OTHEK ECONOMIC SUBJECTS. "I'do not propose,to comment on the various subsidiary questions that are included under this heading in the agenda, except in tho most general terms. We should, of course, welcome the fullest extension of capital investments and the establishment of branch industries in this Dominion, and wo will encourage in every possible way, the development of inter-Imperial trade by trade commissioner services or the other means referred to in the agenda. We shall enter into any discussion that may be promoted on the question of inter-Imperial tariff preferences in a helpful spirit, and, indeed, this Dominion has invariably been to the forefront in the preference which its Customs tariff allows;; to the products of other members of the Commonwealth. We regard the Imperial. Economic Committee, the Empire Marketing Board, and the Imperial Institute as performing useful and valnablo functions each in its own sphere, and wo do not fail to realise the immense potential value of research both in agriculture and in industry. "To the special meeting of experts in industrial research and standardisation we have already arranged for the departure of the Secretary of the New Zealand Department of Scientific and Industrial Besearch, and the deliberations of this meeting of experts, when reported to tho Imperial Conference, will, we hope, lead to results of real and permanent value. "We regard any , improvement in transport or communication between the various British countries as not only a most valuable aid to the cause of inter-Imperial trade, but as a potent factor in increasing the goodwill and understanding of the component parts of tho Commonwealth, and we shall examine with care tho considerations to be placed bef/re the Conference on this subject. BULK PURCHASES. "I feel it necessary to refer more specifically to the three remaining- subjects on the economic: si<U of tlie agenda. I do not propose to commit the Government on the subject of "bulk purchases and price stabilisation." "I am not yet aware of the proposals that will bo placed before the Con-

ference, in this respect, and it would certainly bo premature to express any views, but I look forward with interest to the discussion of these subjects. I am arranging to be advised of any comments that tho various JN'evv Zealand Control Boards may wish to mako and no commitments will of course be made without the prior approval .' the New Zealand Parliament.

"The question of oversens settlement is one of the utmost importance, and is at the same time one of the most difficult. Many of'the dil'U'culties of the United Kingdom aro duo to Uie fact that there is insufficient work to r;e found for its people, and .my system that can bo devised to transfer surplus population from tho United Kingdom to the Dominions must be of veal value. So far as we aro concerned, however, the unprecedented continuance of unemployment here renders it quite impossible that we should at present encourage immigration into this country, and this not only in the interests of tho people already here but equally iv tho interests of the intending immigrant. It would be a disservice to the immigrant no less than to New Zealand to bring any man to tho country unless it is clear that work is available for him, and unfortunately in tho existing conditions in Now Zealand there can be no such certainty. It is with extreme regret therefore that we feel ourselves, unable for tho present to take any effective step in this connection.

"I hope that members, in discussing these subjects, will understand *:ho position if I find myself obliged to refrain from entering upon any subject that in my view would be better considered confidentially 'n the Conference before being submitted for public judgment."

"Finally I must refer to that portion of the report of the experts on Dominion legislation that deals with merchant shipping. Members will have noted that the report proposes complete autonomy on this subject, as on others. The recommendations have been carefully considered by the New Zealand Marine Department, and with one minor exception they arc regarded as entirely acceptable. Tho actual steps, if any, that we may decide to take to put these recommendations into practice here will of course be a matter for the New Zealand Parliament, and it is not proposed to take any such stops during this session. TRADE NEGOTIATIONS. "In addition to the Conference itself there will be numerous matters requiring my attention while abroad, and in particular it is hoped to negotiate trade agreements with Canada and with France.